1 




\ 



FINAL 
REPORT 

of the 

National Youth 
Administration 

Fiscal Years 
1936—1943 



FEDERAL SECURITY AGENCY 
WAR MANPOWER COMMISSION 



I 



FINAL 
REPORT 

of the 

National Youth 
Administration 

Fiscal Years 
1936—1943 



FEDERAL SECURITY AGENCY 
WAR MANPOWER COMMISSION 



UNITED STATES 
GOVERNMENT PRINTING OFFICE 
WASHINGTON : 1944 



WAR MANPOWER COMMISSION 



NATIONAL YOUTH ADMINISTRATION 

2145 C Street, N. W., Washington, D. C 

December 28, 1943. 

Honorable Paul V. McNtjtt, 

Chairman, War Manpoiver Commission, Washington, D. C. 

My Dear Mr. McNtjtt : I have the honor to transmit herewith the 
final report of the National Youth Administration for the fiscal years 
1936 through 1913. This report reviews the operations of the two NYA 
programs : the student work program to provide work and financial 
assistance to needy young persons desirous of continuing their 
education, and the out-of -school work program for needy unemployed 
youth to provide work experience through a nation-wide system of 
work projects and to prepare these young people for private employ- 
ment. The report also reviews the legal bases of operation, the accom- 
plishments, and other youth activities of the National Youth Admin- 
istration. There has been no effort to make an exhaustive step-by-step 
recording of all phases of operations. There was neither the time nor 
the staff available to attempt such an undertaking. On the basis of 
the facts presented in this report, however, I am of the opinion that 
there is contained herein information valuable to those organizations 
and citizens who may be concerned with the problems of youth in the 
future. 

The report was prepared under the direction of Thelma'McKelvey 
Burgess, who was Special Assistant to the National Administrator 
from July 1935 to July 1940. Special acknowledgments for assistance 
in the preparation of the report are made to Mr. Aubrey Williams, 
Administrator of the National Youth Administration until Septem- 
ber 10, 1943, and Betty Grimes Lindley. Staff members who con- 
tributed generously of their time in addition to their regular respon- 
sibilities were Messrs. George Bickel, Milton W. King, Irving Posner, 
Mrs. Rose Franzblau, and Mrs. Mary McLeod Bethune. We wish 
also to acknowledge the assistance of Dr. Paul T. David of the Bureau 
of the Budget for his constructive suggestions and criticisms of the 
first three chapters. The report was prepared during the last 3 
months from NYA records, memoranda, program reports, and statis- 
tical data available in the Washington office. The files and records 
of the National Youth Administration are being prepared for dis- 
position by the National Archives. 

Under the terms of the Labor-Federal Security Appropriations 
Act of 1944 (Public Law No. 135. 78th Congress) , the liquidation of 
the National Youth Administration was ordered to be completed as 

in 



IV 



LETTERS OF TRANSMITTAL 



quickly as possible, but not later than January 1, 1914. This Act and 
the Second Deficiency Appropriations Act of 1943 (Public Law No. 
140. 78th Cong.) required the National Youth Administration to as- 
semble, to take inventory of, and to turn over its property to the 
Director of the Procurement Division, Treasury Department, as ex- 
peditiously as possible. While this placed an exceedingly short time 
limit for the liquidation of an agency as broad in scope as the National 
Youth Administration, the provisions in the act have been followed 
as exactly as possible. Of the 816 inventory units located throughout 
the United States and the District of Columbia, 798 were completed 
on or before August 31, 1943. By October 15, all inventory units had 
been turned over to the Treasury Procurement Division, 2% months 
ahead of the time limit stipulated by the Congress. The National 
Youth Administration requested and has received official receipts for 
this property from the Division of Procurement, Treasury Depart- 
ment. The personnel has been drastically and progressively reduced 
throughout the period allowed for liquidation. Between June 30 and 
December 15, 1943, 64,928 persons were separated from the pay roll of 
the National Youth Administration. This number was made up of 
53.373 NYA youth workers and 11,555 administrative and supervisory 
employees. On December 28, 1943, there remain approximately 75 
employees. 

Since September 10, 1943, final reports from each State and the 
District of Columbia have been compiled by regional staff members 
in addition to their responsibilities of liquidating NYA property. 

Total gross encumbrances of $174,636,396.71 as of June 30. 1943, for 
fiscal years 1942 and 1943, have been liquidated to the extent that only 
$35,710.11, exclusive of travel encumbrances as of November 30, 1943, 
remains as a direct responsibility of the National Youth Administra- 
tion for liquidation. The final responsibilities of the agency in liqui- 
dation have been discharged in all fields except in the settlement of 
claims, for which there has been inadequate legislation. There also 
remains a number of items to be settled by the General Accounting 
Office in its audit of NYA expenditures in accordance with the Bud- 
get and Accounting Act of 1921. Out of a total of approximately 
$4,500,000 for purposes of liquidation, the National Youth Adminis- 
tral ion is returning to the United States Treasury Department a total 
in excess of $700,000. 

The employees of the National Youth Administration have demon- 
strated a commendable spirit of devotion to duty and cooperation, 
without which this task could not have been accomplished. 

Respectfully submitted. 

C. B. Lund, 

Administrator. 



FOREWORD 



The complete story of a Nation-wide undertaking is seldom told 
in the written word for those who might wish to know it. study about 
it, or fully understand it. This is true of the XYA. What is set 
forth in the following chapters are the legal bases of operation, 
regulations governing operation, the framework of the work pro- 
grams, and statistical presentations. More than this there was neither 
the time nor the money to do. 

In the issuance of such a skeleton report, there is always the tor- 
menting decision whether anything at all should be issued if at best 
there can be presented only a limited picture of the agency's oper- 
ation and accomplishments. As is customary, one does the best one 
can with the means and time at his disposal. 

For those of us who have been a part of the organization from its 
begimiing. it is difficult to determine what evaluation we can place 
upon XYA either as a contemporary agency or as an agency with 
historical significance. But some things seem beyond question. As 
a Nation we were caught empty-handed as we faced several million 
young people in the early thirties who were out of school and un- 
employed, and with little or no prospects of obtaining employment. 
We faced these millions with little but the desire to be helpful. The 
schools had no answer to their plight. There was the WPA for un- 
employed family wage earners. But this was "sour-dough" for a 
youngster, even if he were lucky enough to be included. To begin 
life as a "reliefer" was a sorry introduction to what he had been led 
to believe was the promise of American life. The Civilian Conserva- 
tion Corps was a vigorous shot in the arm for American young 
people. As far as it went it was good. It gave outdoor life with 
good food and disciplined living to replace the starvation and idleness 
in which young people found themselves. On the other hand, no 
Youngster who is worth his "keep" is satisfied with plain manual 
labor and food as the total content of life. He knows, even if his 
elders sometimes forget it, that this is his time of development and 
emergence as a responsible adult ; that he must begin to get his ex- 
perience in work and education now or most likely never. The Civil- 
ian Conservation Corps while doing well by the physical side did 
not provide for a variety of work-training or education. v 

From the beginning, the XYA laid down three basic fundamen- 
tals — youth were to be employed at useful and bona fide work; they 
were to be employed on work which had a training value ; and they 

v 



VI 



FOREWORD 



wore to be paid a wage for this work. It was recognized that if the 
NYA were to secure and hold public confidence, it first must require 
youth to do real work; second, that work-training of high quality 
could be secured only through doing actual work; and lastly, that it 
was morally indefensible to pay young people for anything except 
real work. Thus from the beginning the basic policy of the XYA 
was that youth were to be employed at and paid for bona fide work. 
v Providing young people with sound employment, representative of 
a cross-section of contemporary American commerce, industry, and 
agriculture, was in keeping with the best tradition of American life. 
From Benjamin Franklin on down, American young people had 
learned trades, unit skills, the banking business, store clerking, garage 
work, railroading or what have you, through actually going to work 
and learning through doing. When such opportunities became limited 
in the process of economic development and subsequent depression 
years, the vast majority of citizen leaders in the communities out over 
the Xation found the XYA method desirable, and led in the organizing 
\of such work for young people in their communities. 

Of some significance also to those who shall have future responsi- 
bility for the affairs of young people at the local. State, or national 
level is that the work arrangement which finally emerged out of the 
efforts of XYA was acceptable to the young people themselves. I 
believe that in the last analysis the important fact is whether the 
method employed to clo things for people is acceptable to the people 
helped. Probably the clearest evidence that young people did like 
the work-production method evolved by the XYA is the fact that 
all through the last year of its life, young people continued to come 
to the XYA for work-training at the rate of 1.000 a day, a surprisingly 
high rate, even though the wage averaged less than $20 a month. The 
only possible reason for this was that youth found the quality of 
XYA work-training good. That this work-training was looked-upon 
a- good by industry was attested to by the fact that placements during 
the war period averaged about 500 a day. 

In the course of the 8 years of national existence, XYA had the 
benefit of the help of a vast host of people. These included, of course, 
the staff of XYA supervisors and administrative personnel. In addi- 
tion, there were hundreds and thousands of other people in all walks 
of life. From the beginning, there was the XYA Xational Advisory 
Committee to the President, with Mr. Charles W. Taussig as chair- 
man. There were the 48 State advisory committees and hundreds of 
local and communit}^ advisory committees. At one time there were 
as many as 2,500 local and State committees. 

One of the NYA's ablest and wisest friends was Mrs. Eleanor 
Roosevelt, the wife of the President of the United States. Her un- 
failing interest, her deep and sympathetic understanding of the prob- 



FOREWORD 



3 ems of youth, and her endless courage were a source of great strength 
and guidance to the XYA, to the youth on its program, and to the 
youth of America. I speak of her with a grateful and thankful heart 
that youth have had and will continue to have such a friend. 

In many ways the XYA was what the youth made it. Many of those 
who watched and studied N YA felt that it had but two elements — ■ 
one the youth themselves with their hopes, ambitions, strengths, and 
weaknesses; the other the XYA personnel who cared about what be- 
came of these young people. The XYA physical plant was built and 
put together by the youth as part of their project work. XYA youth 
cooked their own food: they manufactured their beds and mattresses: 
they put together a vast series of machine shops for defense and war 
training. Many of the parts out of which they built this work-train- 
ing plant came from the backyards of industry all over America. 

XYA was unashamedly for young people. The youth themselves, 
where vested with authority in the management of projects, often 
proved more severe in their regulations than their supervisors. There 
was a deadly seriousness about XYA youth. They knew they must 
acquire the means to stand their ground in the adult world which they 
were to enter. They knew that what lay ahead was no "practice work." 

Under Government auspices, XYA succeeded in developing ar- 
rangements by which young people could learn the essentials of the 
current work world in America. It produced a miniature of the 
industrial and commercial world, drawn true to its quality and con- 
tent. The small wage payment required that goods be produced which 
were socially useful and made the work moral and exact. The work 
formula was the strength of XYA's character, and one which every- 
one could understand. Furthermore, XYA decentralized its opera- 
tions so that work was related to community needs and authority 
was handed on down to the very last person in the outfit to carry out 
whatever responsibility was his to discharge. The work principle 
was the understandable yardstick by which all elements of the opera- 
tions could be measured for its returns to the young people, to the 
communities, and to the industries which hired these same youth 
as workers. 

There was opposition to the XYA. A Federal agency which pro- 
vided employment for young people and through their efforts pro- 
duced goods and services, which to a limited extent were in competi- 
tion with the services and goods produced by private enterprise, 
could not fail to bring down upon it criticism and bitter debate. This 
opposition grew as industrial activity was increased by the war 
effort, and the surface need for the Government to provide employ- 
ment for young people decreased. My chief regret is that in abolish- 
ing the XYA there was little thought given to the use of the Nation- 



VIII 



FOREWORD 



wide production training plant worth $75,000,000 and to the equip- 
ment which might have been preserved for constructive uses. 

There was also opposition from some educational leaders. Such 
opposition was not unexpected since there has always been a deep- 
rooted fear on the part of many school people that any Federal ap- 
propriations to education meant Federal control of education. This 
fear included the NYA, and some educators never ceased to contend 
but that NYA might be a means of establishing a parallel system of 
education dominated by the Federal Government. In a sense this 
was a jurisdictional fight on the part of many educators to perpetuate 
the tradition that the present educational institutions are the only 
ones which have the responsibility of educating the youth of the 
country. I think the NYA should have dispelled these fears. The 
very decentralization of the program into the public and quasipublic 
non-profit-making institutions of the country should have been 
positive demonstration that there was no desire to interfere with 
established educational practices. The fact that the work program 
for out-of-school unemployed youth was largely planned and projects 
initiated by responsible local citizens should have been added proof 
that the NYA as a Federal agency had no other intention than abiding 
by accepted democratic methods. 

The criticism and opposition were to be expected and undoubtedly 
the program of the NYA was better for this criticism and opposition. 
I have never feared nor regretted the battles which were fought for 
the preservation of the NYA as a youth program, and I have no doubt 
but that the best in NYA will find its way into future programs of a 
similar character for young people. I hope and pray they will be 
better programs. 

The NYA has given positive proof that young people can perform 
valuable work of a socially useful character. The NYA has proved 
that the best and only way for young people to learn to work is 
through work. The NYA is positive demonstration that young- 
people prefer the traditional institutions and arrangements according 
to which their elders lived and into which they themselves expect 
and want to be tested for place and position. The NYA recognized 
all of these elements and essentials of a program designed for the 
benefit of young people. I do not claim that this was done by thought 
and planning alone — it may have resulted by accident, it may have 
been a result of thought and planning, or it may have been a com- 
bination of both thought and accident. 

I have no doubt that those charged with similar responsibilities 
in the future will believe that constructive work, the right to earn 
through work, and practical education will be essentials of any pro- 
gram, the purpose of which is to benefit young people. 

Aubrey Williams. 



TABLE OF CONTENTS 

Chapter Page 

Letter of Transmittal in 

Foreword v 

I. Unemployed Youth During the Depression 1 

Youth, An International Problem 1 

Youth Programs in Germany 2 

Youth Program in Italy 5 

Youth Program in the Union of Soviet Republics 6 

Youth Work Camps in Switzerland 7 

Youth Labor Service in Austria 7 

Work Camps in Poland 8 

Some Measures for Youth Taken in England 8 

The Youth Problem in the United States 9 

Facts on Youth Unemployment, 1930-40 10 

The Unemployment Census of 1930 11 

Census of Unemployment: 1937 12 

Employment and Unemployment Census : 1940 14 

Urban-Rural Distribution of Youth 16 

The Precipitous Change in Events After 1940 20 

Youth Programs Initiated in the United States 22 

II. Legal Authority and Administrative Organization 25 

Legal Authority 25 

Executive Committee 30 

National Advisory Committee 30 

Washington Office 32 

Policy and Procedure 34 

Regional Organization 34 

State Offices 36 

Local Offices 37 

Project Managers: 1942-43 39 

State Advisory Committees 39 

Local Advisory Committees 40 

Appointment of Personnel 41 

III. The Student Work Program 43 

Educational Level of Out-of-School Youth 44 

Cost of School and College Attendance 45 

Origin of Federal Aid to Needy Students 46 

Student Work Objectives 48 

Organization and Administration of the Student Work Program 49 

Education Institutions and the Program 49 

Allocation of Student Work Funds 50 

Special Negro College and Graduate Fund 51 

Student Work Employees 52 

Statistics of Total Employment and Earnings 53 

Distribution of NYA Students by Sex 55 

Employment of Other-than-White Youth 56 

Rates of Pay to NYA Students 56 

Average Monthly Earnings of NYA Students 57 

Work Performed by NYA Students 58 

Types of Work Activity 59 

Examples of NYA Student Work Projects 60 



IX 



X 



TABLE OF CONTEXTS 



Chapter 

III. The Student Work Program — Continued. Page 

Student Work Councils 63 

State School Work Councils 64 

National School Work Council 64 

State, Regional, and National College Work Councils 65 

Characteristics of NYA Students 66 

Family Incomes of NYA Students, 1939-40 66 

Family Incomes of NYA Students, 1942-43 67 

Local Surveys of Need of NYA Students, 1941-42 68 

Size of Families of NYA Students, 1939-40 . 69 

Number of Family in School, 1939-40 70 

Employment Status of Families of NYA Students, 1939-40 71 

Age Distribution of NYA Students, 1939-40 73 

Grade in School or College, 1939-40 74 

Scholarship of NYA College and Graduate Students . 75 

Summary Evaluation of the NYA Student Work Program 77 

State of Colorado Survey . . 78 

State of California Survey 79 

Ohio State University Survey 80 

University of Missouri Survey 81 

University of Florida Report 81 

Return on the NYA Investment 82 

IV. Out-of-School Work Program: Eligibility of Youth, Project Planning. 

and Supervision 83 

Eligibility Requirements for Youth Employment 85 

Planning Work Projects and Development 91 

Cosponsors' Contributions >..-.... 96 

Project Supervision 97 

Supervisory Costs 99 

Training Program for Shop Supervisors 100 

NYA Relations with Employers and Organized Labor 104 

Relationships with Labor '. 105 

Employer Relationships 107 

V. Out-of-School Work Program: Facts on Youth Employed 109 

Employment on the Out-of-School Youth Program, 1935~43 109 

Extent Other-than-White Youth Were Employed on the Out-of-School 

Work Program Ill 

Number Awaiting Assignment 112 

Wages and Hours of Work 113 

Average Monthly Earnings of Youth Project Workers 116 

Allocation of Funds to States 117 

Labor and Nonlabor Expenditures 118 

Characteristics of Project Workers 120 

Age of Project Workers 120 

Geographic Distribution of Youth Employment 122 

Years of Schooling of NYA Youth 124 

Age at Which NYA Youth Left School 126 

Urbanization Differences Among Youth Leaving School 127 

Reasons for Leaving School 127 

Previous Work Experience of NYA Youth 127 

Special Groups of Needy Youth Employed 129 

Handicapped Youth Employed on Projects 129 

Refugee Youth Employed 131 

Project Turn-Over and Duration of Employment 132 



TABLE OF CONTENTS XI 

Chapter Page 

VI. Out-of-School Work Program: Nonresident Projects..... ". 135 

Manual Projects 135 

Construction Projects 135 

Conservation Projects 141 

Sewing Projects 143 

Workshops 146 

Vocational Farm Shops 152 

Woodworking Shops . 153 

Metal Shops ... . 154 

Foundry Shops 156 

Pat%rnmaking Shops 156 

Machine Shops 156 

Aircraft Shops 157 

Radio Shops 159 

Electrical Shops 160 

Auto Mechanic Shops 161 

Shoe Repair Shops 161 

Industry Endorsement of NYA Youth 161 

Nonmanual Projects ^ 162 

Clerical and Stenographic 163 

Hospital Assistance 165 

Home Economics, Nursery School, and School Lunch Projects 167 

Recreational Assistance 170 

Arts and Craft Projects 171 

Posters and Silk Screen Painting .' 172 

Photography 172 

Toy Construction and Repair 173 

Making of Visual Aids 173 

Ceramics 173 

. Music 173 

Other Fine Arts 174 

Library and Museum Projects 174 

Research and Subprofessional Projects 176 

VII. Out-of-School Work Program: Resident Projects 177 

Work Camps for Unemployed Young Women, Fiscal Years 1936-38 177 

Resident Projects 179 

Weiser Resident Project, Weiser, Idaho 184 

Shakopee Resident Project, Shakopee, Minn 185 

Quoddy Resident Project, Passamaquoddy, Maine 187 

South Charleston Resident Project, South Charleston, W. Va 190 

Conclusion 194 

VIII. Out-of-School Work Program: Services to Youth 195 

Youth Personnel Service, Guidance, and Counseling 195 

Youth Guidance Records 198 

Youth Progress Report 198 

Steps in Youth Guidance 199 

Placement Service 200 

Follow-Up After Placement in Industry 201 

Group Guidance 201 

Junior Placement Offices 201 

Aptitude Testing Program 202 

Occupational Studies 203 

Relationship Between the Foreman and the Youth Counselor 203 



XII 



TABLE OF CONTENTS 



Chapter 

VIII. Out-of-Schoo) Work Program: Services to Youth — Continued. Page 

Employment Induction Centers 205 

Regulations Governing Interstate Transfer 207 

Requisition and Clearance Procedure ' 208 

Selection of Youth for Interstate Transfer 208 

Transfer of Documents and Youth Personnel Records 209 

Transportation 209 

Termination on Reassignment 209 

Counseling 209 

Related Training * 210 

The U. S. Office of Education Provided Related Training, 1940-43 213 

Administrative Organization Governing NYA Defense Related Training . 214 

Defense Related Training for NYA Youth Workers 216 

Health Program 217 

Establishment of NYA Health Program 219 

Health Status of NYA Work Project Youth 219 

Health Examinations 222 

Follow-Up Health Examinations 222 

NYA Health Care 224 

Health Education 225 

Youth Recreation Service 226 

Safety and Compensation 229 

Apprentice Training 231 

IX. Summary and Conclusions 233 

LIST OF TABLES 

1. Employment status of the population 10 years of age and over, by age groups: 1930. . 11 

2. Percent distribution of labor force and unemployed in labor force, by age groups and 

sex: 1930 12 

3. Total unemployed and percent distribution of the unemployed, by age groups and 

sex, November 1937 13 

4. Percent distribution of labor force and unemployed, by age and sex: 1940. 15 

5. Percent of labor force unemployed, by age and sex: 1940 15 

6. Number and percent of urban and rural youth 14-24 in labor force and unemployed, 

by sex: 1940 16 

7. Number and percent urban and rural Negro and other nonwhite youth of all Negro 

and other nonwhites in labor force and unemployed, by sex: 1940 17 

B. Number and percent urban and rural Negro and other nonwhite youth of all youth in 

labor force and unemployed, by sex: 1940 17 

9. Percent of college enrollments used to establish NYA allocations, 1935-43 51 

10. Special Negro college and graduate fund, by academic years, 1936-43 52 

11 . Estimated number of different students employed on the NYA student work program, 

academic years 1935-36 through 1942-43 54 

12. Average number of students employed per month on the NYA student work program, 

academic years 1935-36 through 1942-43 ■■ 54 

13. Total earnings of youth employed on the NYA student work program, academic 

years 1935-36 through 1942-43 • • • ' 55 

14. Percentage distribution of students employed on the NYA student work program, 

by sex, academic years 1939-40 through 1942-43 55 

15- NYA student employment by race, academic years 1939-40 and 1942-43 56 

16. Average monthly earnings of students on the NYA student work program, academic 

years 1935-36 through 1942-43 57 



TABLE OF CONTENTS 



XIII 



Page 



17. Percentage distribution of college NYA assignments by general occupational fields, 

1942-43 • • • 60 

18. Median annual income of NYA students' families, by program and race, academic 

years 1939-40 and 1942-43 6 ? 

19. Percent distribution of NYA students, by size of family and program 70 

20. Percent distribution of NYA students, by size of family and race 70 

21. Percent distribution of NYA students' parents, by employment status or occupation . 72 

22. Percent distribution of NYA students' parents, by employment status or occupation 

anjd by race ■ v . . . . 73 

23. Age distribution of youth on the student work program, 1939-40 73 

24. Grade distribution of youth on the student work program, 1939-40 -. . 74 

25. Grade distribution of youth on the student work program, by sex and race, 1939-40. 74 

26. Proportion of institutions in which NYA students as a group made higher or lower 

scholastic averages than the general student body, 1938-39 75 

27. Total Federal and cosponsors' expenditures and percent cosponsors* expenditures 

are of total expenditures, NYA out-of-school work program, fiscal years 1936 
through 1943 • • • 96 

28. Average monthly employment of nonyouth employees and total and average monthly 

earnings, national summary, fiscal years 1940 through 1943 100 

29. Estimated number of different youth employed on the NYA out-of-school work 

program by sex, fiscal years 1936 through 1943 109 

30. Average number of youth employed per month on the NYA out-of-school work 

program by sex, fiscal years 1936 through 1943 110 

31. Average monthly earnings of youth employed by resident status, fiscal years 1936 

through 1943, out-of-school work program 117 

32. Labor and nonlabor encumbrances, out-of-school work program, fiscal years 1943 

through 1943 118 

33- Federal funds expended for equipment, fiscal years 1936 through 1943, out-of-school 

work program 119 

34. Age of youth actively assigned on the NYA out-of-school work program, by sex . . 121 
35- Median age of NYA youth, by race and sex, out-of-school work program 122 

36. Number of youth employed by degree of urbanization, out-of-school work program. 122 

37. Number of youth employed by degree of urbanization, sex and race, March 17, 

1943, and September 1941, out-of-school work program 123 

38. Percent distribution of NYA youth by highest grade completed, by sex and race, 

out-of-school work program 124 

39. Educational attainment of NYA youth, by sex and race, out-of-school work program . 125 

40. Median grade attainment of NYA youth, by census region, out-of-school work 

program 125 

41. Median grade attainment of NYA youth, by urbanization, out-of-school work 

program 126 

42. Median age at which NYA youth left school, out-of-school work program 126 

43. Percent distribution of ages at which NYA youth left school, out-of-school work 

program 126 

44. Median age at which NYA youth left school, by urbanization, out-of-school work 

program : 127 

45. Proportion of NYA youth never privately employed prior to NYA assignment, by 

present age, out-of-school work program 128 

46. Proportion of NYA youth never privately employed prior to NYA assignment, by 

urbanization, by race and sex, out-of-school work program 129 

47. Number of youth terminated from projects by reason, fiscal years 1938 through 

1943, out-of-school work program 132 

48. Selected occupations with critical shortage of labor .J, 149 



XIV 



TABLE OF CONTEXTS 



APPENDICES 

A. National Committees: P age 

NYA National Advisory Committee 237 

NYA National College Work Council 239 

NYA National School Work Council 240 

B. Supplementary tables: 

1. Federal funds expended for the operation of the National Youth Administra- . 

tion programs, fiscal years 1936 through 1943 240 

2. Analysis of funds expended for the operation of the National Youth Adminis- 

tration programs, fiscal years 1940 through 1943 241 

3. Federal funds expended for the operation of the NYA out-of-school work pro- 

gram and the NYA student work program by States, fiscal years 1936 
through 1943 242 

4. Number of NYA administrative employees and tQtal and average monthly 

earnings, fiscal years 1940 through 1943 243 

5. Number of students employed on the student work program and total earnings 

by month, United States and territories, September 1935 through May 1943 244 

6. Number of schools and college and graduate institutions participating in the 

NYA student work program by States, academic year 1939-40 246 

7. Average number of students employed per month on the NYA student work 

program by States, academic year 1939-40 247 

8 . Average number of students employed per month on the NYA student work 

program by States, academic year 1940-41 248 

9. Average number of students employed per month on the NYA student work 

program by States, academic year 1941-42 249 

10. Average number of students employed per month on the NYA student work 

program by States, academic year 1942-43 : . . . . 250 

11. Average monthly earnings of students employed on the NYA student work 

program by States, academic years 1939-40 and 1940-41 251 

12. Average monthly earnings of students employed on the NYA student work 

program by States, academic years 1941-42 and 1942-43 252 

13. Number of youth employed on the NYA out-of-school work program by 

month, United States and territories, January 1936 through May 1943- . . . 253 

14. Average number of youth employed per month on the NYA out-of-school 

work program by States, fiscal years 1940 through 1943 254 

15. Average monthly earnings of youth employed on the NYA out-of-school 

work program, by resident status and by States, fiscal years 1940 and 1941 . . . 255 

16. Average monthly earnings of youth employed on the NYA out-of-school 

work programs, by resident status and by States, fiscal year 1942 256 

17. Average monthly earnings of youth employed on the NYA out-of-school 

work program, by resident status and by States, fiscal year 1943 257 

18. Percentage distribution of youth employed on the NYA out-of-school work 

program, by sex and by type of project, fiscal years 1940 and 1941 258 

19. Percentage distribution of youth employed on the NYA out-of-school work 

programs, by sex and by type of work activity, fiscal year 1942 258 

20. Percentage distribution of youth employed on the NYA out-of-school work 

program, by sex and by type of work activity, fiscal year 1943 259 

21. Number of youth who left the NYA out-of-school work program to accept 

jobs in private industries and public agencies, by sex and by type of in- 
dustry or employment, fiscal year 1941 260 

22. Number of youth who left the NYA out-of-school work programs to accept 

jobs in private industries and public agencies, by sex and by type of in- 
dustry or employment, fiscal year 1942 261 

23. Number of youth who left the NYA out-of-school work programs to accept 

jobs in private industries and public agencies, by sex and by type of in- 
dustry or employment, July 1942 through May 1943 262 



Unemployed Youth During the Depression 

On youth rests the inevitable future of the Nation. From the con- 
stantly emerging vitality of young people, their health and commen- 
surate abilities to contribute to the economic and social structure, and 
the proper use of their potential energies comes the eventual progress 
of a great country. In the decade of the thirties, young men and 
women of the United States went through 10 years of limited oppor- 
tunities. Until demands of war intervened, school and college grad- 
uates swelled the ranks of youth out-of-work; too many were forced 
into dead-end jobs; too many were partially employed or under- 
employed. 

Youth made up more than their share of the mass unemployment 
which accompanied the economic depression. They were a drug on 
the labor market. In fact, they constituted in many respects an eco- 
nomic liability and a social problem. Youth were given altogether 
too casual treatment by many groups and individuals. They repre- 
sented an unsolvable problem until solutions could be found to the 
complexities which affected the country as a whole — indeed, the entire 
world. 

Foundation-shaking economic and social disturbances held the 
undivided attention of the peoples of the earth during the last decade. 
America's proud tradition that this is a great land of individual inde- 
pendence, vigorous self-initiative, and boundless opportunity was 
subjected to reappraisal and questioning by a deeply concerned and 
distressed public. Young and old alike were gripped by the fear of 
insecurity and there were swelling rumblings of discontent on all sides. 

Youth An International Problem 

The burden of unemployment fell with disproportionate severity 
upon young people under 25 years of age. Extensive youth unemploy- 
ment emerged as a major problem, not only in this country but in the 
world, with serious implications to the future of nations. 

The United States was not the first great Government to take steps 
to alleviate a serious youth problem. European countries were con- 
fronted with an alarming out-of -school, unemployed youth problem 
shortly after the end of World War I, and as early as 1921 a work camp 
movement was developed in Europe that eventually included 25 coun- 

\ , i ; l \ , t 



2 NATIONAL YOUTH ADMINISTRATION 

tries. 1 Governments were fearful of the consequences which might 
result from the demoralization, despair, or revolutionary outbursts of 
the younger generation. In all countries where modern industrial 
methods had become the predominant factor in the economy, youth's 
lack of work experience became a constantly greater handicap in com- 
peting with millions of adults in search of employment. There was 
worldwide recognition that long periods of idleness for youth meant 
increased burdens of delinquency, political restlessness, and cynicism. 
This fear stirred governments to institute measures aimed at giving 
idle young people something to do, even though the work might 
frequently f be trivial and unproductive. Governments of other coun- 
tries could no more overlook the fact than could the United States 
during the depression that with more and more young people forced 
to remain unemployed for increasing periods of time, special work 
programs had to be instituted. In practically all countries where a 
highly industrial economy existed, governments felt compelled to 
provide some additional education, vocational guidance and training, 
and usually some form of work experience. 

How the youth problem in extremis became a concern of national 
governments was demonstrated by the regimented lengths to which 
the Nazi and Fascist governments went to control the mental and 
physical development of youth for nationalistic ambitions and in so 
doing usurped to a major degree the influences of the home, the school, 
and the church. These countries, particularly Germany, were so effec- 
tive in their psychological, educational, and military methods with 
the younger generation that they were prepared to subdue the con- 
tinent of Western Europe, and subsequently to challenge the power 
of democratic peoples throughout the world. In these Fascist coun- 
tries, government- controlled youth programs, as well as government- 
controlled youth organizations, were designed instruments to inculcate 
and perpetuate the political ideology of the Nazi and Fascist Party 
Leaders. 

Youth Programs in Germany 2 

Germany, whatever else it may not be, is probably the best example 
of the development of spontaneous youth movements into regimented 
order. The post-war effects of World War I fell heavily upon the 
youth group. German youth were humiliated by defeat, bitterly 
divided among themselves, unable to find means of earning a living, 
and deeply dissatisfied with the social and economic conditions exist- 
ing in their countiy. 

1 Kenneth Holland, "Work Camps for Youth," from American Youth, An Enforced Recon- 
naissance, edited by Thacher Winslow and Frank P. Davidson. (Cambridge : Harvard Uni- 
versity Press, 1940), ch. IV. p. 84. 

2 Thacher Winslow, Youth, A World Problem, Works Progress Administration, National 
touth Administration. (Washington: Government Printing Office, 1937), pp. 30-45. 



FINAL REPORT, FISCAL YEARS 1936-19 43 



3 



Prior to the World War a youth organization, the Jugendbewegung, 
(a back-to-nature movement) was formed, which was made up of a 
variety of youth associations. In the post-war years, the motivating 
philosophy of the Jugendbewegung changed to one of deep dissatis- 
faction with social and economic conditions, and became an instru- 
ment to indoctrinate youth with positive political, economic, and 
religious beliefs. Although there were many religious and political 
youth organizations in Germany with independent programs, the ideas 
motivating the associations joined together in the Jugendbewegung 
influenced the majority of youth organizations. For example, hiking 
and other outdoor activities were advocated by all youth organizations, 
whether or not they belonged to the Jugendbewegung ', and their uni- 
forms were similar. 

The ideology of the Jugendbeivegung set the stage for the youth 
doctrine of the National Socialist Party. Hitler formed his first 
youth organization {Hitler 'pig end) in 1926, which later became the 
organization of all German young people. Until 1932, the Hitler 
Youth were directly subordinate to and administered by the leaders 
of the Brown Shirts. In 1932, it became an independent organization 
within the National Socialist Party and, in June 1933, after the Nazis 
had come into power, a National youth leader was appointed. 

Hitler Youth were required to give complete obedience not only to 
Hitler, as supreme leader, but to other national leaders and to the 
leaders in the different grades in the entire hierarchy above the indi- 
vidual young person. The organization was strongly nationalistic, 
dominated by the Nazi doctrine of racial purity. Emphasis was placed 
on physical achievement and bodily fitness rather than on intellectual 
prowess. Young people were attracted by the uniform, marching, 
public display, hiking, and sports activities. In November 1935, a 
government order made training in the Hitler Youth a prerequisite for 
appointment to posts in the public service. 

Hitler Youth was supposedly a voluntary organization. However, 
the members of Catholic youth organizations had refused to join, and 
finally on December 1, 1936, a decree was issued which stated that "all 
German youth within the borders of the Reich are united in the 
Hitler Youth. All German youth . . . are to be trained bodily, 
mentally, spiritually, and morally, in the spirit of National Socialism 
for service to the nation and to the unified people." This decree gave 
the state, under Hitler as its dictator, administrative control over all 
German vouth, beginning at the age of 10. 

Labor camps had been started in 1924 by certain private youth 
organizations for the purpose of reducing unemployment and coun- 
teracting youthful demoralization. In 1931, the German Govern- 
ment lent financial aid to these camps and took an active part in their 

566597—44 2 



4 



NATIONAL YOUTH ADMINISTRATION 



direction. In 1933. when the National Socialist Party came into fnll 
power, the entire labor camp program was taken over and a single 
voluntary Labor Service was formed. Various steps were taken to 
induce young persons to join labor camps, largely in order to reduce 
unemployment. Finally steps were taken to inaugurate military serv- 
ice for all young men in March 1935', and a few months later a law 
was passed requiring a term of duty in the Labor Service as a pre- 
requisite for entrance into the Army. In June 1935, the organization 
was renamed the Federal Labor Service and a 6 months' term of serv- 
ice was obligatory for all Germans, both male and female. It was 
no longer an emergency program for unemployed youth, but a re- 
quired and regimented program for all young people regardless of 
their financial status. 

By 1939, Labor Service camps for men numbered about 1,000, scat- 
tered all over the country ; the total average membership was 300,000 ; 
and the permanent staff numbered nearly 20,000 officers. Each man 
in the camps received 10 cents a day as "pocket money," as well as 
food, shelter, and clothing. The men worked 35 hours, 5 days a 
week; the sixth day was devoted to education, largely political in 
character ; Sunday was left free and leave was granted. In addition 
to the weekly work hours, 5 hours were spent in military drill and 
5 hours in sports. The work consisted primarily of land reclama- 
tion and improvement, land clearance, and aid in emergencies such 
as floods and fires. 

The Women's Labor Service was not compulsory except for those 
young women desiring a college education. By March 1938, there 
were 25,000 young women assigned to camps in various parts of the 
country. These camps were smaller than the men's camps, averaging 
between 25 and 50 girls. From 6 to 7 hours each day were devoted 
to work. Considerable time was given in the evenings to courses in 
the basic principles of National Socialism and women's role in the 
new state. Young women were taught the essentials of housekeeping 
and were trained in social work ; they received instruction in the work 
of a wife or servant living on the farm. 

There were other programs for 3 T oung people which were controlled 
by the National Socialist Government. Vocational training pro- 
grams gained great importance and were accelerated in preparation 
for the coming war. The system of apprenticeship was expanded and 
the number of apprentices was increased. The education of young 
people in the school system was subject to strict state and federal 
control. The National Socialist Government under Hitler controlled 
and regimented the young people of the German Nation to the end 
that they were psychologically prepared, vocationally trained, phys- 
ically hardened, and militarily adapted to the war which Germany 



FINAL REPORT, FISCAL YEARS 19 36-1 £13 







initiated. German youth were in complete harmony with the ruthless 
intent of the German Government to control the world economy and 
social order. 

Youth Program in Italy 3 

In 1923, when Mussolini marched on Rome and the Fascist Govern- 
ment was established in Italy, the young people of Italy supported 
Fascism enthusiastically. They were attracted to Fascism because 
of the promise it gave them of meeting some of their own economic 
and social needs, as well as the needs of the state. Because of the 
important role of young people in establishing the Fascist dictator- 
ship. Mussolini maintained a consistent interest in Italy's youth. 

In theory, youth were not compelled to enroll in the Opera 
Nazionale Balilla. the one government-controlled youth organization 
established in 1926 under the Under Secretary of State for Physical 
Education. In contrast to Germany, the consent of the parents had 
to be obtained for the enrollment of youth. There was an absence 
in Italy of employment programs designed primarily for youth, such 
as the Labor Service in Germany. Young men were absorbed through 
a military service program, but in large measure assistance to un- 
employed young people was given through a system of unemploy- 
ment benefits. In 1932. for example, statistics of the National 
Fascist Institute for Social Welfare showed that the proportion 
of young persons of both sexes to all unemployed persons drawing 
unemployment benefits was 41 percent. 

The Balilla organization included all the youth of Italy between the 
ages 6-18. The programs included the teaching of gymnastic sports, 
assistance along therapeutic lines, camping, competitive contests, and 
social- welfare activities. Physical education for both boys and girls 
under the supervision of the Balilla organization was compulsory 
in all national and private elementary and secondary schools. The 
Balilla organization also supplemented the curricula of schools 
through subsidiary courses designed to establish the principles of 
the Fascist doctrine and ideals in the minds of the students. 

Upon reaching the age of 18, boys' entered the Young Fascist or- 
ganization in which they remained until they were 21. This or- 
ganization provided the new material for the National Fascist Party 
and militia, and party membership was awarded as a reward for the 
faith and achievement of the members of the Young Fascist organiza- 
tion. In the Fascist Party organization young men received sup- 
plementary training of a purely political character and they were 
further educated in the ideals and principles of Fascism. Pre- 
liminary military training was given, and recreation and social 
activities were carried on by the organization. 



3 Thacher Winslow, op. ext., pp. 53-58. 



6 



NATIONAL YOUTH ADMINISTRATION 



Girls reaching the age of 18 entered the Young Fascist girls or- 
ganization, which combined study and work with physical exercises 
and social service activities. 

The Fascist political and propaganda methods permeated the uni- 
versity groups, in particular university cultural and athletic activities. 
The Fascist Government also extended the system of vocational train- 
ing for both school and unemployed youth. 

In Italy, as in Germany, youth found their satisfaction in outlets 
such as marching to rhythmic music, carrying colorful banners with 
emotional slogans, and applauding the stirring and fiery speeches of 
their admired leaders. Their youthful susceptibility to the doctrines 
of their leaders was consistently exploited. 

A brief review of the youth programs in other representative 
European countries provides more comprehensive background on 
the extent governments adopted special programs for youth. A 
digest of measures taken in the Union of Soviet Republics, Switzer- 
land, Austria, Poland, and England has been made for this report. 

Youth Program in the Union of Soviet Republics 4 

A strong youth movement has always been a part of the Soviet 
Union's program. From official reports and other available evi- 
dence, the indication has been that the Soviet Union believed that 
its future depended largely upon its youth. Great strides have 
been made in the educational system to reduce illiteracy. In the case 
of university students, large numbers have been enabled to take uni- 
versity courses through a system of special alloAvances paid either 
b}" the government or by the administrative bodies for which the 
students expected to work upon completing their courses. In 1935, 
it was estimated that approximately 80 percent of the university 
students were receiving allowances to enable them to live while 
studying. 

All youth organizations in the Soviet Union are included in one 
organization — the Communist Union of Youth, which is open to 
young people 15 to 26 years of age who are loyal to the Soviet Gov- 
ernment. The Communist Union of Youth was formed at an all- 
Russian congress of youth organizations in October 1918 and retained 
its organizational structure with a few modifications and additions 
until 1936, when it drew up an entirely new program and statutes 
to correspond more nearly to the "new era." The period of recon- 
struction in Russia was considered as over, and the Communist Union 
of Youth now directed its effort toward the filling of the tremendous 
needs of industry and agriculture for trained and well-educated 
workers. The Communist Union of Youth conducted political and 
educational work, military training through close association with 



* Itjid., pp. 126-138. 



FINAL REPORT. FISCAL YEARS 19 36-1943 



7 



all military activities, emergency or "shop work" on industrial pro- 
jects and in Soviet industrial establishments, and encouraged 
all types of sports aimed to develop the physical culture of the youth 
population. 

The members of the Communist Union of Youth were inspired 
with an unquestionable allegiance to the ideals of their country. 
They were the "shock troops" of the Soviet, and were in constant 
readiness to demonstrate their courage, endurance, and skill. Their 
entire interests and strength were pledged to the support of the gov- 
ernment. Youth were granted the franchise at 18 years of age, and 
the young communist training involved considerable participation in 
the social and economic life of the country. 

Since Germany invaded Russia in 1940, the stubborn resistance of 
the Russian people in warding off defeat, and the growth in offensive 
strength of the Russian Army, has been a demonstration of the con- 
tinuous integration since 1918 of youth into the national structure. 

Youth Work Camps in Switzerland 5 

A Student Voluntary Work Service was developed in Switzerland 
in 1925. University students participated in summer camp programs, 
performing work of a useful character which would not increase un- 
employment. In 1933 the Swiss Government established work camps 
for the young unemployed. Local communities were required to con- 
tribute at least an amount equal to that expended by the Federal 
Government. The work of the unemployed in the first camps was 
on public work projects. Later in 1935 the Government took meas- 
ures to include, in the work camps vocational development and re- 
habilitation of the young unemployed. There was no compulsory 
labor service in Switzerland; the camps were developed to meet the 
needs of youth on a noncompulsory basis. 

Youth Labor Service in Austria G 

No country was more severely crippled, both economically and 
politically, after the first World War than Austria. Widespread un- 
employment existed and in 1932 voluntary work camps for youth were 
legally established by the government. In October 1934 the labor 
service was reorganized and all private organizations which had been 
responsible for maintaining work camps were combined into the 
Austrian Labor Service, a state organization. The work camps were 
to provide constructive activity for unemployed young people and 
to train them for existing jobs. The camps were coordinated under 
the Federal Administrator of Social Administration, and were 
financed from relief or benefit funds, or by grants from the Federal 

5 Kenneth Holland, Youth in European Labor Camps. (Washington : American Council 
on Education, 1939), pp. 51-68. 

6 Ibid., pp. 130-146. 



8 



NATIONAL YOUTH ADMINISTRATION 



treasury. The cost of the camps was distributed between the Gov- 
ernment and the work sponsor. The majority of the youth in the 
camps was under 26 years of age, and was enrolled for a period of 
40 weeks, working an 8-hour day. The work performed was chiefly 
on public works, soil improvement and conservation, and relief work. 
An educational program was emphasized with special attention given 
to physical exercise and physical education. After Austria became 
a part of Germany, its labor service was incorporated into the National 
Socialist Labor Service. 

Work Camps in Poland 7 

In Poland, unemployed youth became a concern of the Government 
and in 1935 the Government assumed control of privately sponsored 
work camps for unemployed youth. Government funds were sup- 
plied by the Ministry of Social Welfare, autonomous local authorities, 
or social institutions. In 1936 the work camps were placed under the 
Minister of Defense, at which time the work projects were more 
directly related to meeting the needs of national defense. At this 
time, the Polish labor camps for unemployed youth came under the 
influence of the army and later became part of the military training 
program of the country. 

Some Measures for Youth Taken in England 8 

Unemployment after the first World War and until 1937 was of high 
proportions in England, and Government measures were taken to 
alleviate the unemployment situation, not only for older workers but 
young workers as well. Government Training Centers were organ- 
ized by the Ministry of Labor in 1925, which provided means by which 
young men could be taken from depressed areas and trained for work 
in those parts of the country where there were more opportunities 
for employment. No s}^stem of labor camps was set up in England. 
The Ministry of Labor decided that the most effective approach to 
assist young people in depressed areas was by providing them with 
work opportunities in more prosperous parts of the country. 

Junior Instruction Centers were first established in 1920 as a 
temporary measure and were made a permanent part of the Ministry 
of Labor in 1930. The maintenance of Junior Instruction Centers 
became compulsory in 1934 in areas of concentrated juvenile unem- 
ployment, and all young people who were not in school and who were 
looking for work were compelled to enroll in one of the centers. The 
enrollees were not trained for any specific type of work, but were 
given manual instruction, physical education, and other practical 
subjects. 

7 Ibid., pp. 206-221. 

* Ibid., pp. 147-179 ; and Tbaoher Winslow, op, cit., pp. 46-48. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



9 



The Youth Problem in the United States 

European countries were in the throes of economic depression and 
social readjustments much sooner than the United States. As men- 
tioned in the previous pages, European governments were taking 
measures to alleviate unemployment in the twenties and the first youth 
work programs were started early in that decade. However, the 
thirties actually brought the more fully organized or total government 
programs for youth in the principal European countries. 

In the United States, the 1920's were on the whole years of pros- 
perity, and expanding industrial production. The peak of rapid 
economic expansion was reached in 1929, when it abruptly ended. 
There were no new lands to provide outlets to a growing population. 
The leveling oil' of industrial expansion and the surplus of agricultural 
products resulted in a narrowing of employment outlets. The imme- 
diate concomitant of a decline in industrial production was mass un- 
employment with no developing opportunities for absorption of dis- 
placed workers. By 1932, national income produced had fallen by 
aproximately 40 percent as measured in terms of 1939 purchasing 
power. Losses in dollars and cents to industry and private indi- 
viduals reached enormous proportions with productive capacity 
* unutilized and deteriorating, bank failures, and curtailed new invest- 
ments. 9 Consumer expenditures declined; the national income 
dropped ; prices on farm products fell off sharply so that farm income 
was unable to meet taxes and carrying charges on indebtedness. The 
maladjustment of the industrial and agricultural economy produced 
an immediate loss in individual wages and incomes and, for a great 
number of the population, complete or partial unemployment, 10 

This period of economic adversity resulted in an unprecedented 
problem of unemployment which could not have been met by local 
authorities even if tax revenues had not drastically declined. 
Estimates of the number of unemployed persons ranged from a peak 
in March 1933 of 14,762,000, or 29 percent of the total labor force, 11 to 
8.8 million persons in April 1940. 12 The annual average of unemploy- 
ment undoubtedly exceeded 10,000,000 persons in 1932, 1933, 1934, and 
1938. 13 Moreover, these estimates did not include the under-employed 
or partially employed. 

From 1910 to 1940, the proportion of young people in gainful em- 
ployment had been steadily declining. This had been in part 

9 National Resources Planning Board, Security, Work, and Relief Policies. (Washing- 
ton: U. S. Government Printing Office, 1942), pp. 16-17. 

10 Ibid., pp. 17-18. 

11 Ibid., pp. 19, 20. 

12 U. S. Department of Commerce, Bureau of the Census, Monthly Report on the Labor 
Force, Special Surveys : No. 16, October 6, 1943. 

13 National Resources Planning Board, op. cit., pp. 19-20. 



10 



NATIONAL YOUTH ADMINISTRATION 



accounted for bv the increase in school attendance resulting from 
parents' desire to give their children a better education than they 
themselves had, legal requirements in regard to compulsory school 
attendance, and child labor laws governing minimum age require- 
ments for employment. But not all young people remained in school 
or college, and even during the 1920's there were fewer opportunities 
for employment due to the elimination of man}^ "boys' jobs" because 
of improved production methods which tended to enhance the competi- 
tion between youth and older, more established workers for the less 
skilled jobs. 14 This competition for work between youth and adults 
was multiplied with the advent and deepening of the depression. 
Opportunities for work were far too few to absorb the 1,750,000 new 
and inexperienced workers coming into the labor market each year 
when this labor market was already surfeited with older workers 
clamoring for employment of any nature. 15 

Facts on Youth Unemployment, 1930-1940 

Between 1930 and 1940, youth appeared in large numbers among the 
unemployed and in proportion to their numbers in the population 
were over-represented. During this decade, youth employment varied 
between 1 million in 1930, 5 million in 1933, 3.9 million in 1937, and 
2.6 million in 1940. 

As far back as 1930, when the Nation as a whole was only partially 
conscious of an unemployment problem in general, there were at least 
one million youth, able and willing to work, but unable to locate 
emplo3anent. The estimates of the number of unemployed youth have 
hot taken into consideration unpaid family workers who worked at 
home chiefly because of absence of remunerative work elsewhere, 
These young persons probably would have swelled the unemployed 
total another million or a million and a half. Therefore, statistical 
enumerations of unemployment and in particular j^outh unemploy- 
ment are undoubtedly conservative. Certainly, they do not exaggerate 
the extent and significance of the high volume of unemployment 
among youth. 

There were three national surveys of unemployment from 1930 to 
1940; namely, (1) the Unemployment Census of 1930 in connection 
with the regular decennial census of population ; (2) Census of Partial 
Employment and Unemployment and Occupations: 1937; (3) the 
Unemployment Census of 1940 in connection with the regular decennial 
census of population. In addition, there were special relief census, 
and State and local unemployment studies. For the purpose of this 

14 American Youth Commission, Youth and the Future. (Washington : American Council 
-on Education, 1942), p. 11. 

15 Howard M. Bell, Matching Youth and Jobs. (Washington: American Council on 
Education, 1940), p. 3. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



11 



report, a brief analysis is made only of the national surveys, as these, 
without question, reveal the seriousness of the youth unemployment 
situation. 

The Unemployment Census of 1930 

In connection with the Decennial Census of 1930, a Nation-wide 
count of the unemployed was undertaken. This survey confined 
itself only to persons who considered themselves as usually occupied. 
In accordance with information obtained from individuals, those who 
had not been at work on the day preceding the census count were 
distributed into seven categories, only two of which are considered for 
the purpose of this report. These two, classes A and B, included (A) 
persons out of a job, able and looking for work, and (B), persons with 
jobs but on lay-off without pay, excluding those sick or voluntarily 
idle. The remaining groups were made up of persons not regularly 
thought of as unemployed, such as those unable to work, persons on 
vacation, persons with jobs but out because of illness, etc. 

The combination of classes A and B gives a total of 3,188,000 un- 
employed persons. Authorities in the field of unemployment statistics 
agreed that this figure is probably an understatement of the unem- 
ployment situation in 1930. Their estimates of the amount of under- 
statement varied, however, some placing it at more than 500,000, 
others considerably lower. 16 

In the reported census figures, unemployed youth, 15-24 years of 
age, were 27.5 percent (879,000) of the total unemployed. Since the 
definitions used in the 1930 census automatically excluded workers 
who had never had a job, it may be assumed that most of the new 
inexperienced young persons just coming into the labor force were 
not included in the count of the total labor force. If these new work- 
ers had been included, the count of unemployed undoubtedly would 
have been several hundred thousand greater, particularly in the youth 
group. 



Table 1. — Employment status of the population 10 years of age and over, by 

age groups: 1930 
[000's] 



Age 


Population 


Labor force 


Unemployed 1 


Total 10 years and over 

10-14 years 


98,723 


48, 830 


3, 188 


12, 004 
22, 423 
18, 954 
17, 199 
13, 018 
8, 397 
6, 634 
94 


393 
11, 442 
11,823 
10, 501 
7, 831 
4, 591 
2, 205 
44 


4 

879 
713 
630 
512 
314 
134 
2 


15-24 


25-34 


35-44 

45-54 


5.5-64 


65 and over 


Unknown 





1 Includes unemployed workers of classes A and B, unadjusted for inexperienced workers. 



16 Robert R. Natban, "Estimates of Unemployment in the U. S. A.," from International 
Labor Review, Vol. 38, No. 1, January 1936, pp. 55 ff. 



12 



NATIONAL YOUTH ADMINISTRATION 



Although male workers have always made up the major part of the 
labor force, women have been an increasing proportion of gainful 
workers for more than half a century. In 1930, men were 78 percent 
of the labor force and women 22 percent. On the other hand, men 
were 8*4 percent of the unemployed and women only 16 percent. Un- 
employment was hitting male workers relatively more severely than 
women workers at that time. This same relative situation held true 
for the youth group as 21 percent of the unemployed were young 
men and only 6 percent young women compared with 15 percent and 
8 percent, respectively, which young men and women were of the total 
labor force. 

The following table brings out clearly that even in 1930 youth were 
having relatively more difficulty in finding employment than older 
workers. Almost 28 percent of all the unemployed were youth, 
although only 23 percent of the labor force was in the age group 
15-24 years of age. 



Table 2. — Percent distribution of labor force and unemployed in labor force, by 

age groups and sex: 1930 1 
fono's] 



Age 


Labor force 


Unemployed 


Total 


Male 


Female 


Total 


Male 


Female 


Total number . . __ 

Percent. . ...... .. 

10-14 years 


48, 830 
100. 00 


38. 078 
100. 00 


10. 752 
100. 00 


3. 188 
100. 00 


2,686 
100.00 


502 
100.00 


0.8 

23. 43 

24. 21 
21. 50 
16. 04 

9.40 
4. 51 
. 10 


0. 72 
19. 83 
24. 08 
22. 61 
17.24 
10. 35 

5. 09 
.08 


1.12 
36. 19 
24.68 
17. 60 
11.77 
6.04 
2. 47 
, 13 


0. 13 
27.56- 
22 36 
19. 77 
16. 06 
9. 85 
4.20 
.07 


0. C9 
- 24.79y 
22 23 
2a 39 
17. 06 
10. 70 
4.67 
.07 


0. 33 
42. 41 
23. 07 
16. 44 
10. 72 
5.26 
1.70 
.07 


15-24 


25-34 


35-44 . 


45-54 


55-64 


65 and over. . . 

Unknown .. . 



; Fifteenth Census of the United States, 1930, Occupation Statistics, Age of Gainful Workers, vol. V, ch. IV, 
table 2, p. 115; and Unemployment, Unemployment Returns by Classes, vol. I, table 6, p. 13. 



Male youth constituted 25 percent of the unemployed, but were 
only 20 percent of the total male labor force. Among women workers, 
an even greater differential existed between older women and younger 
in the labor force in that women under 25 made up over 42 percent 
of all unemployed women, but were only 36 percent of the labor 
force of women. 

Thus in 1930. young people were coming into the labor force 
faster than they could be absorbed in relationship to their place in 
the working population. They were bearing a disproportionate bur- 
den of unemployment which became heavier throughout the entire 
decade. 

Census of Unemployment: 1937 

At the time of the 1937 Census of Unemployment, general economic 
conditions were slightly improved over the peak unemployment period 



FINAL REPORT, FISCAL YEARS 19 36-19 43 



13 



of 1933 when 14,762,000 were estimated as unemployed, of which ap- 
proximately 5 million were youth. 17 Nevertheless, total unemploy- 
ment and emergency employment were still high, the estimate being 
10,983,000, of which 3.923,000 were youth 15-24. In addition to this 
number, there were another 5.5 million partly employed workers who 
wanted more work, of which 1.5 million were youth. Since the total 
labor force was then estimated as over 54 millions, approximately 20 
percent of the total labor force was unemployed, and another 10 per- 
cent waslmderemployed. 

An even more disproportionate share of the unemployment load was 
carried by youth in 1937 than 1930. In 1937, young persons made 
up almost 36 percent of the unemployed, as contrasted with 27.5 per- 
cent in 1930. 

Unemployment was proportionately greater among young women, 
as over 43 percent of ail unemployed women were in this age group, 
while unemployed young men made up 32 percent of all unemployed 
male workers. 



Table 3. — Total unemployed and percent distribution of the unemployed, 1 by age 
groups and sex, November 1937 2 

[000's] 





Total 


Male 


Female 
















Age 
















Number 


Percent 


Number 


Percent 


Number 


Percent 


Total 15-74 years ... . . . 


10, 983 


100.0 


7, 418 


100.0 


3, 565 


100.0 


15-24 


3, 923 


35.9 


2, 369 


32.0 


1, 554 


43.6 


25-34 


2. 225 


20.3 


1,473 


19.9 


752 


21.2 


35-44 


1,839 


16.8 


1,245 


16.9 


594 


16.8 


45-54 


1, 576 


14.4 


1, 169 


15.8 


407 


11. 5 


55-64 


1,029 


9.4 


835 


11.3 


194 


5.5 


65-74 


349 


3.2 


304 


4.1 


45 


1.3 


Age not reported... 


42 




23 




19 















! Includes emergency Government workers. 

2 Census of Partial Employment and Occupations: 1937, Final Report on Total and Partial Unemployment, 
vol. IV, The Enumerative Check Census. (Washington: U. S. Government Printing Office, 1938), table 
4, p. 12. 



The unemployment incident among Negro and other nonwhite 
youth was proportionately higher than among white youth. For 
example, 20 percent of the total population of colored youth 15-24 
years of age was unemployed, contrasted to 16 percent of the total 
population of white youth in this age group. In relation to the labor 
force 15-24 years of age, 35 percent of the colored youth in the labor 
market was unemployed as compared with 29 percent of the white 
youth. The Negro entered the worker group at a somewhat younger 
age and remained in the labor force longer than did whites. In rela- 
tion to workers, as well as in relation to population, the extent of un- 
employment was greater for Negro women in all age groups. 18 

17 "WPA Unemployment Estimates," from Monthly Laoor Review, LIII, October- 1941. pp. 
893-897. 

18 IUd., table 14, pp. 35-37. 



14 



NATIONAL YOUTH ADMINISTRATION 



The Unemployment Census of 1937 emphasized the growing extent 
of youth unemployment and confirmed previous estimates of the 
alarming proportions of the youth problem, not only from the stand- 
point of income but from the standpoint of morale, and the increasing 
national failure to utilize and develop potential abilities. 

Employment and Unemployment Census: 1940 

The Sixteenth Census of the United States was a timely indicator 
of the manpower resources of the Nation since full war-planning was 
being rapidly developed with its attendant demands on manpower 
reserves. Huge Government contracts to private industry were about 
to be placed, but industrial conversion had not yet been accom- 
plished nor had the size of the military services increased significantly. 
The spectacular increases in employment and the armed forces were 
still in the future. 

At the time the Census was taken, there were 52,966,000 persons in 
the labor force, of which 85.7 percent was gainfully employed. The 
remaining 14.3 percent (7,585,000) was seeking work or was on emer- 
gency Government work. This figure of unemployment was un- 
doubtedly an understatement because of confusion on the part of 
enumerators and respondents properly to classify certain types of pub- 
lic emergency work, and the reluctance on the part of some emergency 
workers to admit they were emergency workers. An unemployment 
figure of 8 million was considered a more satisfactory figure. 19 Un- 
employment in this country at the end of the decade continued to be a 
social and economic problem of great proportions, in spite of a 
business upswing due to defense orders after 1939. 

There were 11,651,000 youth, 14-24 years of age, in the labor force 
in 1940, of which 2,648,000 were unemployed. An interesting and re- 
vealing fact is that 767,980 workers were reported as never having had 
a full-time job lasting 1 month or more. Almost all of these inex- 
perienced job seekers were youth who had not obtained valid work 
experience in preparation for more stabilized employment. 20 

At the time of the last census, youth 14-24 years of age seeking em- 
ployment or on public emergency work programs were still 35 percent 
of the total unemployed group. The beginning of another decade 
had not yet improved youths' chances for regular employment. 

Women were continuing to enter the labor market in increasing 
numbers, and were 25.4 percent of the total female population 14 
years of age and over, as compared to 24.3 percent in 1930. There 
was a decline in the proportionate number of males in the labor force 
from 1930 to 1940, from 84 percent of the total male population over 
14 years of age to 79 percent. 

19 Sixteenth Census of the United States : 1940, Population, The Labor Force, Employ- 
ment, and Personal Characteristics, (sample statistics), p. 8. 

20 Ibid., p. 8. 



FINAL REPORT; FISCAL YEARS 1936-1943 15 



Table 4. — Percent distribution of labor force and unemployed by age and sex: 1940 1 

[000's] 



Age 


Labor force 


Unemployed 
















Total 


Male 


Female 


Total 


Male 


Female 


14 years and over: 














Total number . 


52, 966 


39, 959 


13, 007 


7,585 


5, 856 


1,729 


Total percent . 


100.0 


100.0 


100.0 


100.0 


100.0 


100.0 


14-24 


22.0 


18.9 


31.6 


34.9 


30.6 


49.4 


25-44 - 


46.9 


46.9 


47.0 


37.0 


38.4 


32.6 


45-64 


27.1 


29.6 


19.4 


25.4 


27.9 


16.9 


65 and over 


4.0 


4.6 


2.0 


2.7 


3.1 


1. 1 



i Ibid., table 11, pp. 65-66. 



The relative disadvantage of youth in the labor market is clearly 
indicated by a comparison of the proportion of workers in each age 
group who were unemployed. Of all youth in the labor market under 
25 years of age, 23 percent was unemployed as contrasted with only 11 
percent of all workers 25-44 years of age, 13.3 percent of those 45-64 
years of age, and 9.6 percent of those 65 and over. 



Table 5. — Percent of labor force unemployed by age and sex: 1940 1 ' 

[000's] 



Age 


Labor force 


Percent unemployed 


Total 


Male 


Female 


Total 14 years and over 

14-24 


52, 966 


14.3 


14.6 


13.3 


11, 651 
24, 786 
14, 412 
2, 117 


22.7 
11.3 
13.3 
9.6 


23.7 
12.0 
13.8 
10.0 


20.8 
9.2 

11.4 
7. 1 


25-44 


45-64 


65 and over ... ... 





i Ibid. 



Youth of both sexes continued to bear a disproportionate share of 
unemployment compared to older workers in 1940. Unemployment 
among women was much more highly concentrated in the youth group. 
Almost 50 percent of the unemployed women was under 25 years of 
age, but only 32 percent of the total labor force of women was in this 
age group. Of the unemployed men, 30.6 percent was under 25, al- 
though only 18.9 percent of the total male labor force was represented 
by the youth group. 

Compared with 1930 and 1937, there was increased concentration of 
unemployment among women in the younger ages. Among men, 
almost no change had taken place. Extensive youth unemployment 
persisted with marked intensity throughout the entire last decade, 
which increased from 27.5 percent in 1930 to 36 percent in 1937, and 
35 percent in 1940 of the total unemployed. On the other hand, youth 
were 23 percent of the labor force in 1930 and only 22 percent in 1940. 



16 



NATIONAL YOUTH ADMINISTRATION 



Urban-Rural Distribution of Youth 

In 1930 there were almost 2 million more urban than rural youth ; 
the city youth population in 1940 was larger than rural youth by 2% 
million, which indicated continued migration of at least 1.3 million 
farm and small town youth to urban areas. 21 The movement of youth 
to centers of large population during the thirties w T as higher than 
might have been expected during the depression era, although con- 
siderably smaller than in the 1920's when 2,000,000 youth left farms 
and farm communities in the total net migration of 6,300,000 from 
rural areas. 22 

In 1940, the urban labor force was 22 million larger than the rural 
nonfarm and rural farm labor force. There were 2 million more ur- 
ban youth in the labor market than rural youth, although there were 
proportionately more rural youth in the labor force than urban 
youth. In addition, the extent of unemployment was proportionately 
greater for rural farm youth than either rural nonfarm or urban 
youth, as almost 43 percent of the rural farm youth was unemployed 
compared with 33 percent rural nonfarm and 34 percent urban youth. 

Table 6. — Number and percent of urban and rural youth 14-24 in labor force 
and unemployed by sex: 1 940 1 

[000's] 



Urban: 

14 years and over 
14-24 

Rural nonfarm: 

14 years and over. 
14-24 

Rural farm: 

14 years and over. 
14-24 



Total 



Total labor force 
Male 



Num- 
ber 



32, 720 
6. 831 



9, 767 
2, 141 



10, 479 
2, 679 



Per- 
cent 



100.0 
20.9 



100. 
21.9 



100.0 
25.5 



Num- 
ber 



23, 019 
3, 894 



7, 699 
1,481 



9, 241 
2, 183 



Per- 
cent 



Female 



Num- Per- 

ber cent 



100.01 9,701 
16.91 2,937 



100.0 
19.2 



100.0 
23.6 



2, 068 
660 



100.0 
30.3 



100.0 
31.9 



1,238 100.0 
496 40. 1 



Total unemployed 



Total 



Num- 
ber 



Per- 
cent 



5, 001 
1,706 



1, 721 
575 



100.0 
34.1 



100.0 
33.4 



100.0 
42.6 



Male 



Num-- Per- 
ber cent 



3, 695 
1.084 



1,439 
433 



722 
278 



100.0 
29.3 



100.0 
30. 1 



100.0 
38.5 



Female 



Num- 
ber 



1,306 
622 



Per- 
cent 



100.0 
47.6 



100.0 
50.4 



100.0 
63.6 



i Sixteenth Census of the U. S., op cit., table 11. 

While Negroes and other nonwhites constituted 10.5 percent of the 
total labor force, they represented 12.4 percent of the total unem- 
ployed. In the age group 14-24, Negroes and other nonwhites were 
11.6 percent of 'the total youth in the labor market and were 10.7 
percent of all unemployed youth. While there was relatively more 



21 Paul T. David, Postwar Youth Employment, prepared for the American Youth Com- 
mission. (Washington: American Council on Education, 1943), p. 113. 

2 - Bruce L. Melvin and Elna N. Smith, Rural Youth, Their Situation and Prospects, Re- 
search Monograph XV, Works Progress Administration. (Washington, U. S. Government 
Printing Office, 1938), p. 7. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



17 



nonwhite youth in the labor market than their elders, there was pro- 
portionately less unemployment. In the urban areas, Negroes and 
other nonwhite youth were 20 percent of the nonwhite labor force 
and 28.6 percent of the unemployed in this racial group. There was 
relatively more unemployed white youth in urban areas than nonwhite 
youth. In the rural nonfarm areas, Negroes and other nonwhite 
youth were 25 percent of the nonwhite labor force and 32.2 percent 
of the nonwhite unemployed. On the other hand, they were 10 per- 
cent and 8.5 percent, respectively, of all youth in the labor force and 
unemployed. In the rural-farm areas, nonwhite youth were 31.7 per- 
cent of the nonwhite labor force and 43 percent of all unemployed 
non whites. Nonwhite youth were 19.5 percent and 8 percent, respec- 
tively, of all youth in the labor force and unemployed in rural-farm 
areas. Although there was proportionately more nonwhite youth in 



Table 7. — Number and percent urban and rural Negro and other nonwhite youth 
of all Negro and other nonwhites in labor force and unemployed by sex: 1940 1 
, [000's] 





Nonwhite labor force 


Nonwhite unemployed 




Total 


Male 


Female 


Total 


Male 


Female 




Num- 


Per- 


Num- 


Per- 


Num- 


Per- 


Num- 


Per- 


Num- 


Per- 


Num- 


Per- 




ber 


cent 


ber 


cent 


ber 


cent 


ber 


cent 


ber 


cent 


ber 


cent 


Urban: 


























14 years and over 


3,085 


100.0 


1, 852 


100.0 


1,233 


100.0 


714 


100.0 


492 


100.0 


222 


100.0 


14-24 


617 


20.0 


337 


18.2 


280 


22.7 


204 


28.6 


126 


25.6 


78 


35.1 


Rural nonfarm: 


























14 years and over 


861 


100.0 


593 


100.0 


268 


100.0 


152 


100.0 


122 


100.0 


30 


100.0 


14-24 


214 


24.9 


140 


23.6 


74 


27.6 


49 


32.2 


36 


29.5 


13 


43.3 


Rural farm: 


























14 years and over 


1, 645 


100.0 


1, 305 


100.0 


340 


100.0 


72 


100.0 


55 


100.0 


17 


100.0 


14-24 


522 


31.7 


395 


30.3 


127 


37.4 


31 


43.1 


22 


40.0 


9 


52.9 



1 Sixteenth Census of the U. S., op. cit., table 11. 



Table 8. — Number and percent urban and rural Negro and other nonwhite youth 
of all youth in labor force and unemployed by sex: 1 940 1 

[000's] 





Labor force (14-24 years of age) 


Unemployed (14-24 years of age) 




Total 


Male 


Female 


Total 


Male 


Female 




Num- 


Per- 


Num- 


Per- 


Num- 


Per- 


Num- 


Per- 


Num- 


Per- 


Num- 


Per- 




ber 


cent 


ber 


cent 


ber 


cent 


ber 


cent 


ber 


cent 


ber 


cent 


Urban: 


























14-24: All youth 


6, 831 


100.0 


3, 894 


100.0 


2,937 


100.0 


1, 706 


100. 


1,084 


100.0 


622 


100.0 


14-24: Nonwhite . 


617 


9.0 


337 


8.7 


280 


9.5 


204 


12.0 


126 


11.6 


78 


12. 5 


Rural nonfarm: 


























14-24: All youth 


2, 141 


100.0 


1,481 


100.0 


660 


100.0 


575 


100.0 


433 


100.0 


142 


100.0 


14-24: Nonwhite . 


214 


10.0 


140 


9.5 


74 


11.2 


49 


8.5 


36 


8.3 


13 


9.2 


Rural farm: 
























14-24: All youth _ 


2, 679 


100.0 


2, 183 


100.0 


496 


100.0 


367 


100.0 


278 


100.0 


89 


100.0 


14-24: Nonwhite 


522 


19.5 


395 


18. 1 


127 


25.6 


31 


8.4 


22 


7.9 


9 


10.1 



1 Sixteenth Census of the U. S., op. cit., table 11. 



NATIONAL YOUTH ADMINISTRATION 



the labor force than white youth in the rural non-farm and rural- 
farm areas, there was relatively little difference in the extent of un- 
employment between the two groups in relation to total unemployment. 

During the thirties, the "piling up" of youth in farm areas lowered 
their already slim chances for remunerative farm employment ; many 
were living on land unfit for cultivation. Young persons living at 
home with their parents received little if any compensation other than 
subsistence. The reduced farm income did not permit the payment 
of cash wages. The number of farm families on relief increased, and 
the number in the lowest income group increased. There were not 
less than 2,000,000 rural youth who were members of relief house- 
holds at some time between 1930 and 1935. The peak was in February 
1935, when 1,370,000 rural youth were receiving aid. 23 

The great regional differences in the character of argiculture, the 
low average cash income, and the diminishing opportunities for farm 
ownership reduced the prospects of rural youth of attaining economic 
security on the land. 

In the urban areas, competition with older workers and urban youth 
reduced the chances of the rural youth for employment. Technologi- 
cal improvements, seniority rights, lack of apprenticeship oppor- 
tunities, and the spread-the-work system by means of lowered weekly 
hours of work made the situation even more difficult for rural youth 
to break through the barriers to employment. 24 Furthermore, rural 
youth had less education than city youth because of the marked dif- 
ference in available educational facilities in rural areas. Rural youth 
usually leave school earlier than urban youth and the quality of their 
education is lower. There are fewer vocational schools which train 
farm youth in agricultural or nonagricultural occupations. 

In an industrial society, the demand for workers is based on the 
requirements of industry and this demand has been affected by tech- 
nological progress. The skilled trades requiring long periods of 
training have been losing ground to the operatives and specialists. 
In the period of the depression, skilled tradesmen were forced to take 
operatives jobs; specialists became service-workers and manual 
workers; and unskilled labor had almost no opportunity to elevate 
itself from the bottom of the occupational ladder. Great numbers of 
young men in urban and rural areas usually obtained their first 
experience as casual unskilled laborers. Under depression condi- 
tions, the prospects of improving their occupational status were 
practically nonexistent. 

A survey of urban youth was made during 1938 in 7 cities — Bing- 
hamton, N. Y. ; Birmingham, Ala. ; Denver, Colo. ; Duluth, Minn. ; , 



23 Bruce L. Melvin and Elna N. Smith, op. cit., Summary XV. 

24 Ibid., pp. 21^0. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



19 



St. Louis, Mo. ; San Francisco, Calif. ; and Seattle, Wash, 25 A sample 
of 30,000 youth was made, and at the time of interview, TO percent 
was actively in the labor market. Nearly 40 percent had left high 
school before graduation, and lack of funds was the principal reason 
given for leaving school. The economic level of a youth's family 
had considerable bearing on the amount of education he received ; anci 
the higher the level of the father's occupation, the more apt he was 
to finish high school or go to college. Two other reasons for leaving 
school were (1) no desire for further education, and (2) a preference 
for work in order to have their own money. Youth entered the labor 
market at an average age of 18 years, and few knew how to choose 
intelligently beween the industries and the occupations in which it 
was possible to get jobs. A little over half (55 percent) of the youth 
who entered the labor market obtained a private job shortly after 
leaving school. The remaining 45 percent was unemployed for some 
period of time, varying from 6 months on. The youth interviewed 
named lack of experience and the lack of specialized training as the 
two most important difficulties faced in applying for employment. 
Eace, of course, was an outstanding factor in educational achieve- 
ment, occupational determination, employment opportunity, and in- 
come level. 

The unemployed youth situation in New York City was studied by 
the New York City Welfare Council in 1935. 26 The findings of this 
study were typical of the youth unemployment situation as it existed 
in almost all urban areas: 

1. Unemployed youth — that is, young persons 16 to 24 years of age who were 
out of school, able to work and desirous of employment but unable to obtain 
it — constituted one-third of the total sample of the youth population of the city. 

2. The unemployed group contained almost as many girls (47 percent) as 
boys (53 percent). 

3. A larger proportion of the Negro than of the white youth was unemployed 
and seeking employment (43 percent as compared with 33 percent), so that 
the unemployed group contained a disproportionate number of Negroes. 

4. Unemployed youth exhibited wide variations in degree of maturity, in 
educational achievement and vocational training, and in work experience. Almost 
one-fifth were found to be under 18, about two-fifths 18 to 20, and about two- 
fifths 21 to 24 years of age. One-fourth had left school on finishing the eighth 
grade, and one-fifth on graduating from high school ; one-tenth had not completed 
even the eighth grade, while, on the other hand, almost as many had had from 
1 to 7 years of college or university training. As to work experience, half of the 
group under 21 years of age, compared with about one-seventh of those 21 years 
of age or older, comprising altogether over one-third of the total, had never had 
a job of any kind. The other two-thirds had had work experience of varying 

25 Stanly L. Payne, Thirty Thousand Urban Youth, Federal Works Agency, Work Proj- 
ects Administration. (Washington : TJ. S. Government Printing Office, 1940), Social Prob- 
lems Series No. 6. 

23 Ellen Nathalia Matthews, "Unemployed Youth in New York City" from Monthly Labor 
Revieic of the Bureau of Labor Statistics, U. S. Department of Labor (February 1937), 
vol. 44, No. 2. 

566597—44 3 



20 



NATIONAL YOUTH ADMINISTRATION 



lengths covering many types of employment, with about half in semiskilled and 
unskilled occupations and about two-fifths in clerical and kindred occupations. 

5. The unemployed youth had been out of school from a few weeks' time to 
10 years or more. The average for those who had never had employment was 
between 1 and 2 years, and for those with work experience about 5. Almost all 
who had never had work, and a large proportion of the others, had left school 
at a time when they must have been faced with the fact of scant likelihood of 
their getting a job. Even so, three-fourths had left without completing high 
school. 

6. Of the unemployed youth with some work experience half had had no work 
for at least 1 year, and half had had at least 2 years' unemployment since leav- 
ing school. More than half had been idle at least half the time since they left 
school. This takes no account of the boys and girls who had been unable to 
obtain any employment, though out of school, on an average, between 1 and 2 
years. What such facts as these may mean in the dissipation of youthful ener- 
gies and the undermining of youthful enthusiasm cannot be measured, but they 
must be considered in the formulation of programs for unemployed youth, both 
from the point of view of rehabilitating those whose morale has suffered from 
protracted idleness, and also on the preventive side through the provision of 
abundant facilities for the use of the enforced leisure. 

7. Unemployed young persons who were themselves in receipt of relief or who 
were members of relief households, who constituted one-fourth of the total 
unemployed, are seen, when compared with unemployed youth not on relief, to 
have had a more limited education and training, to have left school earlier, to 
have been out of work longer, and to have spent a larger proportion of their 
working lives without employment. The problem presented by this group is 
therefore more serious than that of unemployed youth as a whole and as such 
will require especially careful and thorough attention in all its aspects, if the 
singling out of this group for special observation and treatment is to be continued. 

The Precipitous Change in Events After 1940 

Although the stress of events leading toward war was being felt 
in this country in 1940, there was no general acceptance on the part of 
the public that this Nation would soon be participating in a war 
of unparalleled magnitude. The unemployment slack was being 
taken up very slowly, and in July 1940 there w T ere 9.3 million esti- 
mated as unemployed. After July, however, consistent inroads into 
the unemployment situation were made by industry, which was con- 
verting to the new war economy. In addition, an important, far- 
reaching national step had been taken. Selective Service became law 
on September 16, 1940, and the military forces launched their huge ex- 
pansion program in preparation for the threat of war, which was 
looming closer as a menace to the national safety. 

The impact of industrial, agricultural, and military demands on 
manpower was not felt immediately. The number of unemployed 
varied month ?jy month and dropped from the July 1940 figure of 9.& 
million to 7 million in September, ascended to 7.7 million in J anuary 
1941, and then consistently declined to 6 million in June 1941. Since 
that time, with slight variations due to seasonal unemployment and 
the closing of schools during the summer months, which always brings 



FINAL REPORT, FISCAL YEARS 1936-1943 



21 



a temporary rise in the number seeking employment, there has been 
a rapid drop in the number of those seeking work. The absorption 
of the unemployed kept pace with the Nation's phenomenal conver- 
sion to a total war basis. In December 1941, the historic month of 
Pearl Harbor, unemployment had fallen to 3.8 million persons. In 
July 1943, when the National Youth Administration was liquidated 
by congressional action, only 1.2 million persons were estimated as 
unemployed. 27 

Youth, particularly young white men, were drawn into the changed 
national situation with great rapidity after July 1941. Women did 
not have opportunities for employment at the same rate as white men, 
even taking into consideration the induction of men into the military 
services. As illustration, male unemployment dropped 5.5 million 
(84.6 percent) from April 1940 to September 1942, while female 
unemployment dropped from 1.6 million (69.6 percent) during this 
same period. 

Another significant and powerful factor was the withdrawal of men 
into the armed forces under selective service and the patriotic desire, 
especially on the part of younger men, to enlist in the military services. 
Young men under 25 years of age were 42.4 percent of the 3,726,000 
registrants inducted into the Army for the period September 1940 
through November 1942. Even greater inroads were made by the 
Army enlistment program in this age group. For the same period, 
64.8 percent of 1,090,000 Army enlistments were under 25 years of age. 
If the Navy figures were available,' they would show even greater enlist- 
ments from the young age groups. 28 

In November 1942, by act of Congress, Selective Service was empow- 
ered to draft young men 18 and 19 years of age. Information is not 
available as to the rate of induction, but the assumption can be made 
with reasonable assurance that all those physically able have been 
inducted. 

In reality, America's young men have gone to war. The situation 
which existed for them before the war has vanished — they were needed 
and wanted. Their courage,- strength, and energy were absolutely 
essential to success in battle and success on the production front. 
Young women have responded as well. They have not only gone into 
employment of all kinds, but they have voluntarily enlisted in the 
WAC's, the WAVES, SPARS, and MARINES and are now an 
integral part of the military services. 

The depression era had faded into the past — there was no longer a 
disproportionate surplus of youth — there were no longer "millions too 

27 U. S. Department of Commerce, Bureau of the Census, Monthly Report on the Labor 
Force, Special Surveys : No. 16, October 6, 1943. 

28 Selective Service in Wartime, Second Report of the Director of Selective Service 
1941-42. (Washington: U. S. Government Printing Office, 1943), pp. 55-57. 



22 



NATIONAL YOUTH ADMINISTRATION 



many." The war had swept before it the stagnant pools of idle youth. 
In this time of national emergency and crisis, youth had their oppor- 
tunity to participate in industrial and agricultural production and, 
even more significant, the winning of the military victory to insure 
the national safety. They were again part of the flow of national life. 

Youth Programs Initiated in the United States 

The relative overrepresentation of youth among the unemployed 
and the inadequacy of the existing facilities to bridge the gap between 
school and employment resulted in a recognition by the Federal Gov- 
ernment of the particularized needs of unemployed youth. Federal 
Government officials realized that special measures were needed to 
provide young workers, without any occupational or industrial attach- 
ments, with work experiences for entrance into the normal responsi- 
bilities of adulthood. Financial aid as a public relief measure was 
necessary; but economic and social rehabilitation of youth was of 
major importance in the establishment of a Federal youth agency. 
The obtaining of valid work experience and sound work habits through 
a program of public works, the stimulation of educational and recrea- 
tional interests, were basic objectives of a Federal youth program. A 
program of relief would not have solved any of the problems of youth 
and was discarded by intelligent, socially minded citizens and govern- 
ment officials as being completely undesirable. Relief was a very 
temporary expedient to alleviate distress but as a longer-term remedy 
for young people only resulted in almost immediate deterioration — 
morale was affected and bad habits were cultivated which decreased 
employability. Moreover, relief reached only those in the most dis- 
tressed conditions of poverty and failed to include any appreciable 
number of the youth who were being unfavorably affected because of 
idleness induced by unemplojanent. The combined resources of the 
secondary, vocational, and higher educational systems were unable 
to encompass the out-of -school youth problem or to provide the type 
of experience required for industrial employment. The unemployed 
youth needed and required either an opportunity to gain experience 
through work in order to become a productive unit in society or an 
opportunity to continue his education which he had ended because the 
family income was not sufficient to meet the minimum expenses entailed 
in continued attendance in school. 

The persistent magnitude of the youth unemployment problem was 
first recognized by the Federal Government in March 1933, when the 
Civilian Conservation Corps was established for the purpose of pro- 
viding work relief for unemployed young men and to conserve and 
develop the natural resources of the country through a program of 
useful public works. The CCC developed a Nation-wide system of 



FINAL REPORT, FISCAL YEARS 1936-194 3 



23 



1,500 work camps for unemployed young men who enrolled voluntarily 
from urban and rural areas. Employment in CCC camps ranged from 
290,000 in the spring of 1933 to a peak of 510,000 in August 1935, Since 
that time to June 1940, employment fluctuated between 250,000 and 
350,000 per month. 

The CCC provided employment only to young men and therefore 
did not meet any of the needs of the unemployed, out-of -school group 
of young women. Furthermore, its program did not include any but a 
limited percentage of the total unemployed young men, many of 
whom needed a more varied type of work experience in preparation 
for private employment. The extent of unmet need was so great that 
the second major step was taken by the Federal Government to deal 
with the special problems of youth on June 26, 1935, with the establish- 
ment of the National Youth Administration, by Executive order, 
within the frame-work of the Works Progress Administration. 29 

Upon signing the Executive order, President Roosevelt made the 
following statement, which reflected the national concern of parents, 
educators, labor, and industry as to the proportions of the unemployed 
youth problem and which in broad terms set the administrative policy 
thereafter pursued by officials of the National Youth Administration : 

I have determined that we shall do something for the Nation's unemployed 
youth because we can ill afford to lose the skill and energy of these young men 
and women. They must have their chance in school, their turn as apprentices, 
and their opportunity for jobs — a chance to work and earn for themselves. 

In recognition of this great national need, I have established a National Youth 
Administration, to be under the Works Progress Administration. 

This undertaking will need the vigorous cooperation of the citizens of the 
several States, and to insure that they shall have an important part in this work, 
a representative group will be appointed to act as a national advisory board, with 
similar boards of citizens in the States and municipalities throughout the coun- 
try. On these boards there shall be representatives of industry, labor, education, 
a- id youth, because I want the youth of America to have something to say about 
■what is being done for them. 

Organizations along State and municipal lines will be developed. The work 
oi' these organizations will be to mobilize industrial, commercial, agricultural, and 
educational forces of the States so as to provide employment and to render other 
practical assistance to unemployed youth. 

It is recognized that the final solution of this whole problem of unemployed 
y< 'Uth will not be attained until there is a resumption of normal business activi- 
ties and opportunities for private employment on a wide scale. I believe that 
the national youth program will serve the most pressing and immediate needs 
of that portion of unemployed youth most seriously affected at the present time. 

It is my sincere hope that all public and private agencies, groups, and or- 
ganizations, as well as educators, recreational leaders, employers, and labor 
leaders, will cooperate wholeheartedly with the National and State Youth Ad- 
ministrations in the furtherance of this national youth program. 

The yield on this investment should be high. 

29 Executive Order No. 7086, dated June 26, 1935. 



24 



NATIONAL YOUTH ADMINISTRATION 



The major objectives of the National Youth Administration were 
formulated shortly after its creation, and they remained fundamentally 
unchanged throughout the life of the agency. These objectives were : 

1. To provide funds for the part-time employment of needy school, 
college, and graduate students so that they could continue their 
education. 

2. To provide funds for the part-time employment on work projects 
of young persons, the projects being designed primarily not only to 
give these young people valuable work experience but to benefit youth 
generally in the local communities. 

3. To establish and to encourage the establishment of job training, 
counseling, and placement services for youth. 

4. To encourage the development and extension of constructive 
educational and job-qualifying leisure-time activities. 

Therefore, the National Youth Administration had just one basic 
purpose: To provide part-time work, paying ivages, for two groups 
of young people throughout the country — 

1. Youth who were in school but who needed financial assistance 
in order to continue their education ; and 

2. Youth who were out of school, unemployed, and needy. 



Legal Authority and Administrative 
Organization 

The National Youth Administration operated its program succes- 
sively within three Federal administrative structures. During the 
first 4 years it was a small unit within the Works Progress Admin- 
istration and was subordinated to the more dominant program of 
the WPA ; for a little over 3 years it was a division within the Federal 
Security Agency ; and for 9% months it was a part of the War Man- 
power Commission. Each change brought with it administrative and 
operational adjustments. 

The NYA had no legislative recognition between 1935 and 1938 and 
existed on funds allowed by the Works Progress Administrator from 
WPA appropriations. During this period there was no positive as- 
surance that funds would be allowed in the amount originally desig- 
nated, due to unforeseen emergency demands on WPA funds. This 
uncertainty as to funds did not enable NYA officials to plan with 
assurance more than 6 months ahead during the first 2 years, and 
they were therefore not in a position to make any but the most 
temporary commitments to sponsors of worth-while projects. 

After the fiscal year ending June 30, 1938, the NYA yearly went 
to Congress for an appropriation to continue its program. While 
this gave assurance of a full year's appropriation for program oper- 
ations, NYA officials were faced with great uncertainty as to the 
extent of its operations at the end of each fiscal year. The work 
projects for out-of -school unemployed youth had to be planned on 
a completion basis during each current fiscal year, as there was always 
the possibility that they would have to be abandoned. Without the 
benefit of permanent statutory legislation, the emergency work-relief 
programs, of which the NYA was one, were not able to plan and 
develop stabilized programs. 

This chapter briefly sumarizes the legal authority for the NYA 
and its administrative structure and organization. 

Legal Authority 

The National Youth Administration was created by Executive 
Order No. 7086 on June 26, 1935, under the authority of the Emer- 

25 



26 



NATIONAL YOUTH ADMINISTRATION 



gency Relief Appropriation Act of 1935. 1 The National Youth Ad- 
ministration was placed within the Works Progress Administration 
(created by Executive Order No. 7034) and was subject to the general 
supervision of the Works Progress Administrator. Immediate sup- 
ervision was vested in an Executive Director, Mr. Aubrey Williams, 
who was appointed by the President. 2 Provision was made in the 
Executive order for a national advisory committee and an executive 
committee, members of both committees to be appointed by the 
President. The order authorized the prosecution of projects to pro- 
vide relief, work relief, and employment for persons between the ages 
of 16-25 years, no longer in regular attendance at a school requiring 
full-time and not regularly engaged in remunerative employment. 

Subsequently, Executive Order No. 7164, issued on August 29, 1935, 
established rules and regulations governing NYA program operations. 
The student-aid projects — employment, amount of payments to stu- 
dents, and supervision — were placed under the direction of the NYA 
Executive Director. However, eligibility for employment of out-of- 
school youth on NYA work projects, their earnings, hours of work, 
and conditions of employment were to be determined by the Works 
Progress Administrator. 

Rules and regulations governing the NYA programs were further- 
amended in Executive Order No. 7319, dated March 18, 1936, and 
Executive Order No. 7433, dated August 18, 1936, which prescribed 
maximum earnings for young persons under the student aid program 
and the out-of-school work program. 

The Emergency Relief Appropriations Acts of 1936 and 1937 3 con- 
tinued the practice of making appropriations direct to the President. 
Therefore, in Executive Orders Nos. 7396 of June 22, 1936, and 7649, 
issued June 29, 1937, the Works Progress Administration (and by 
implication, the NYA) was extended for the duration of these appro- 
priations, and regulations governing expenditures under the 1935 
act were made applicable to the new appropriations. 

The Emergency Relief Appropriation Act of 1938 for the first time 
made appropriations directly to the Works Progress Administration, 4 
including a specified appropriation of $75,000,000 to the WPA for 
the NYA. This act provided for the continuance of the NYA within 
the WPA to June 30, 1939. The WPA was authorized by Congress to 
issue rules and regulations governing the expenditure of funds appro - 

1 Public Res. 11, 74th Cong. 

2 Mr. Williams was Assistant Administrator of the Works Progress Administration at 
the time of the issuance of Executive Order No. 7086 and served as Executive Director of 
the NYA without compensation in addition to his WPA duties. 

3 ,ERA Act of 1936, Public, No. 739, 74th Cong., title II ; and ERA Act of 1937, Public 
Res. 47, 75th Cong., 1st sess., title I. 

* ERA Act of 1938, Public Res. 122, 75th Cong., title I. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



27 



priated therein. The act denned the field of operations of the National 
Youth Administration, although there was no change in the NYA 
programs as previously defined by Executive orders. On the basis of 
the authority granted in the 1938 act, the Works Progress Administra- 
tor, in conjunction with the NYA Executive Director, issued admin- 
istrative orders establishing rules and regulations governing NYA 
operations. The 1938 act superseded for all practical purposes the 
original Executive orders, except insofar as the creation of the agency 
and its administrative machinery were involved. On December 24, 

1938, Executive Order No. 8028 changed the title of the Executive 
Director to Administrator of the National Youth Administration. 
This order did not involve a legal change in relationships with the 
Works Progress Administration. By mutual agreement, however, 
the NYA Administrator was given full authority over the administra- 
tive policies and actions of the National Youth Administration, and 
the area of WPA service and responsibility was defined in a joint 
letter to WPA and NYA officials. 5 

Under the reorganization legislation enacted in 1939, 6 the first plan 
of Government reorganization, transmitted to the Congress on April c/ 
25, 1939, 7 transferred the National Youth Administration from the 
Works Progress Administration to the newly created Federal Security 
Agency. The President's message stated that "The NYA is trans- 
ferred from the Works Progress Administration to the Federal Se- 
curity Agency, since its major purpose is to extend the educational op- 
portunities of the youth of the country and to bring them through 
the processes of training into the possession of skills which enable 
them to find employment." This transfer was made effective July 1, 

1939, by the Congress. The NYA was no longer a purely relief or- 
ganization, but was given the broader functions of extending to needy 
young persons opportunities for continuing their education and pro- 
viding employment and training to needy unemployed young persons 
within an administrative structure (Federal Security Agency), the 
major purposes of which are to promote social and economic security, 
educational opportunity, and the health of the citizens of the Nation. 8 

During the year the transfer to the Federal Security Agency was 
being effected (July 1, 1939, to June 30, 1940), authority and funds 
for the continued operation of the National Youth Administration 
were incorporated in the Emergency Eelief Appropriation Act of 

5 WPA General Letter 236, February 23, 1939. 

a Reorganization Act of 1939, Public, Xo. 19, 76th Cong., 1st sess., empowered the Presi- 
dent to investigate the organization of all agencies of the Government and determine what 
changes therein were necessary to accomplish tbe purposes of the act. 

7 First Plan on Government Reorganization, Message from the President of the United 
States to the Congress, April 25, 1939, H. Doc. 262, 76th Cong., 1st sess. 

8 IMd. 



28 



NATIONAL YOUTH ADMINISTRATION 



1939, 9 which recognized the separation of the National Youth Admin- 
istration from the Works Progress Administration. An appropria- 
tion in the amount of $100,000,000, with not more than 5 percent to be 
spent on administration, was made directly to the NYA, and the Ad- 
ministrator of the NYA was authorized to fix the monthly earnings 
and hours of work for youth workers engaged on work projects, 
financed in whole or in part from the appropriation to the National 
Youth Administration. The NYA Administrator was authorized to 
carry out the purposes of the act without reference to the WPA, 
and the NYA was extended thereby until June 30, 1940. The NYA 
now set up its own machinery for recruitment, selection, and assign- 
ment of unemployed youth to work projects, as well as for the other 
services formerly performed by the WPA. 

On July 5, 1939, the President submitted the name of Mr. Aubrey 
Williams as National Youth Administrator to the Senate for con- 
firmation under the provision of section 38 of the ERA Act of 1939. 
The Senate approved the appointment on July 12, 1939, and the Presi- 
dential appointment was made on July 13, 1939. Mr. Williams con- 
tinued in office until September 10, 1943, when he resigned. 

For the next 2 years appropriations for the continued operation of 
the National Youth Administration were made subject to the super- 
vision and direction of the Federal Security Agency. 10 For the fiscal 
year ending June 30, 1941, the NYA received an appropriation of 
$95,984,000 for the student work and out-of-school work programs, 
$6,100,000 for administrative expenses,, and $75,000 for printing and 
binding. In addition, there were two supplementary appropriations. 
The First Supplemental Civil Appropriation Act, 1941, appropriated 
$30,535,375 for the two operating programs, $1,941,063 for administra- 
tive expenses, and $23,562 for printing and binding. 11 The First 
Deficiency Appropriation Act, 1941, 12 provided an additional $21,980,- 
000 for the two operating programs, $500,000 for administration, and 
$20,000 for printing and binding. The Nation was beginning its 
defense program, and the need for training of the potential labor sup- 
ply for defense industries was promptly recognized by the Congress. 

The appropriation act for the fiscal year ending June 30, 1942, 13 
provided $85,984,000 for the continuation of the regular programs 
of student work and work projects for unemployed youth; and, in 

9 ERA Act of 1939, Pub. Res. 24, 76th Cong., 1st sess. (H. J. Res. 326). 

10 Labor-Federal Security Appropriation Act, 1941, Public, No. 665, 76th Cong., title II r 
«nd Labor-Federal Security Appropriation Act, 1942, Public Law No. 146, 77th Cong., 1st 
sess., title II. 

11 Public, No. 812, 76th Cong., title I. 

12 Public, No. 25, 77th Cong., title I. 

13 Labor-Federal Security Act, 1942, Public Law No. 146, 77th Cong., 1st sess., title II. 
(Note : The act states, "The paragraphs herein under the National Youth Administration 
may be cited as the 'National Youth Administration Appropriation Act, 1942.' ") 



FINAL REPORT, FISCAL YEARS 1936-194 3 



29 



addition, specified an appropriation of $56,972,000 to provide em- 
ployment for needy young persons between the ages of 17-24 in resi- 
dent and workshop projects in preparation for employment in defense 
occupations. The provisions of the act stipulated that not more than 
100,000 youth were to be employed at any one time under the program 
authorized for defense projects. Appropriations in the amount of 
$5,700,000 and $83,000 were made, respectively, for administration and 
printing and binding for the regular programs; and $3,038,000 for 
administration of the defense-work program. This year marked the 
transition from the peace to the defense period. The Congress had 
made a legal distinction between the regular or "depression period" 
work program for out-of -school, unemployed youth and a program 
to prepare unemployed youth for employment in defense occupations. 

Executive Order No. 9247, dated September 17, 1942, transferred the V 
NYA to the War Manpower Commission in the Office for Emergency 
Management of the Executive Offices of the President, and its ad- 
ministration was placed under the supervision and direction of the 
Chairman of the War Manpower Commission. Appropriations for 
the continuance of the NYA for the fiscal year ending June 30, 1943, 
were made through the Labor-Federal Security Appropriation Act, 
1943, 14 which stipulated that employment and work training for un- 
employed young persons of the ages 16-24, inclusive, were to be pro- 
vided on "resident and nonresident workshop and other projects 
approved by the Chairman of the War Manpower Commission as 
needed in the prosecution of the war in furnishing work experience 
and work training preparatory to employment in occupations" in 
which there was a present or potential shortage of labor. The appro- 
priations were reduced sharply. A total of $49,729,000 was granted 
the new war production training program for unemployed youth, 
$5,000,000 for part-time employment of needy students in colleges 
and universities, $3,000,000 for needy students in schools below the 
college level, $3,500,000 for administrative expense, and $45,000 for 
printing and binding. There was a 60-percent reduction from the 
previous year's appropriations to administer and operate the NYA 
programs for youth. 

Pearl Harbor had ended the "depression" period for youth. In 
fact, it completely altered the circumstances surrounding the life of 
everyone, no matter what his age. The times had changed; unem- 
ployment was no longer a national problem. Total mobilization for 
war was in progress, and the Nation was concerned with manpower 
shortages rather than surpluses. 

In the Labor-Federal Security Appropriation Act of 1944, 15 the 

14 Labor-Federal Security Act, 1943, Public Law 647, 77th Cong., 2d sess., title II. 

15 Labor-Federal Security Appropriation Act, 1944, Public Law 135, 78th Cong., 1st sess., 
title VII. 



30 



NATIONAL YOUTH ADMINISTRATION 



Congress ordered the liquidation of the National Youth Administra- 
tion not later than January 1, 1944. On July 3, 1943, 16 the NYA 
war production projects for unemployed youth were terminated by 
the National Youth Administrator, and the liquidation of the National 
Youth Administration as an agency was immediately undertaken, 

Executive Committee 

Executive Order No. 7086, creating the NYA, named Miss Josephine 
Roche, Assistant Secretary of Treasury, as chairman of an executive 
committee. On July 9, 1935, the President appointed the following 
as members of this executive committee : 17 Arthur J. Altmeyer, Sec- 
ond Assistant Secretary, Department of Labor ; John W. Studebaker, 
Commissioner of Education; M. L. Wilson, Assistant Secretary of 
Agriculture; Lee Pressman, general counsel, Resettlement Admin- 
istration; Chester Hayden McCall, special assistant to the Secretary 
of Commerce. 

The members of the executive committee represented Federal de- 
partments with interests in the types of activities to be carried on 
by the NYA. The executive committee met frequently during the 
first 2 years and advised with the Executive Director in the formula- 
tion of the early policies and organizational procedures. During the 
fiscal year ending June 30, 1938, this committee functioned only nom- 
inally and shortly thereafter went out of existence. The first co- 
ordination between the NYA and other Federal agencies concerned 
with youth activities was achieved through the membership of the 
executive committee. 

National Advisory Committee 

In the Executive order creating the NYA, it was stated tliat a na- 
tional advisory committee would be appointed by the President, the 
members of which were to be representatives of labor, business, agri- 
culture, education, and youth. On June 16, 1935, Mr. Charles W. 
Taussig, president of the American Molasses Co., was appointed by 
the President as chairman of the national advisory committee. 18 The 
other members of the national advisory committee were appointed by 
the President on August 1, 1935. 19 

The national advisory committee met at least once a year to advise 
on major policies, evaluate the effectiveness of NYA policies and pro- 

16 Project operations were not terminated on July 1, 1943, as the Congress did not take 
final action on the appropriation for 1944 until July 3, 1943. 

17 Executive Order No. 7096, July 9, 1935. 

18 Executive Order No. 7107, July 16, 1935. 

19 Executive Order No. 7123, August 1, 1935. See appendix A for list of members of the 
National Advisory Committee. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



31 



gram operations, and make general recommendations for improve- 
ments or adjustments in the programs of the NYA in the light of 
changing national conditions. The committee as a whole and the 
individuals of the committee worked closely with the NYA Admin- 
istrator in analyzing the needs of youth and in planning the over-all 
national program. 

Each year the national advisory committee reported to the Presi- 
dent of the United States its evaluation of the status of youth in the 
Nation, particularly unemployed youth, as well as its evaluation of 
the NYA programs. 20 

The national advisory committee served as the medium through 
which youth organizations and the representatives of various youth 
groups presented their programs of action to the NYA. There was 
a genuine attempt on the part of the national committee to provide a 
channel of self-expression for organized youth. The National Stu- 
dent Federation of America, the International Student Service, the 
American Youth Congress, Catholic, Protestant, and Jewish youth 
organizations, and rural youth organizations all had access to the 
chairman of the national advisory committee. A democratic rela- 
tionship was thus maintained between youth groups and an official 
body of representative citizens which acted in an advisory capacity to 
a Federal agency. 

As one of its first actions, the national committee recommended im- 
mediate establishment of State and local advisory committees, and 
from that time on assisted in stimulating and coordinating the inter- 
ests and actions of these advisory committees, which were appointed 
during the first 6 months and continued as part of the administrative 
organization throughout the 8 years of operation. The national com- 
mittee and the advisory committees at the State and local levels were 
effective instruments throughout the whole NYA program and 
brought about close cooperation between citizens and NYA officials. 

The national advisory committee expressed the underlying pur- 
pose of the advisory committee as follows : 

It is not enough to elect officials and give them power to appoint administrative 
agents. That would produce, at best, a benevolent bureaucracy feeding upon 
its own ideas. Sooner or later it would destroy the fertility of the soil in which 
democracy can grow. Democracy becomes secure to the extent that individual 
citizens join hands and participate with their government in meeting common 
problems. Equally, government must take increasing care not to become in- 
sulated from the opinions and needs of the community. To this joint end, to 
the end of a more active partnership between citizens and an agency of govern- 
ment, advisory committees are one of the most effective of all instruments. 

20 Meetings of the NYA national advisory committee : August 15, 1935, Washington, 
D. C. ; April 28-29, 1936, Washington, D. C. ; February 8-9, 1938, Washington, D. C. - 
September 6-7, 1939, New York City ; November 7-9, 1940, Washington, D. C. ; October 27- 
28, 1941, Washington, D. C. 



32 



NATIONAL YOUTH ADMINISTRATION 



Washington Office 

From June 26, 1935, until June 30, 1939, the Washington office of the 
National Youth Administration was a small coordinating and general 
supervisory nucleus, and regular branches of the Works Progress Ad- 
ministration were utilized to the fullest extent to avoid any unneces- 
sary duplication of functions, services, and personnel. 

The WPA performed the finance, statistical, safety, travel, leave 
and accident compensation services ; and prescribed the policies, pro- 
cedures, and regulations governing these services. 21 The staff of the 
NYA Washington office assisted in carrying out the functions and ob- 
jectives of the National Youth Administration and acted as a service 
organization for the NYA regional directors and the State youth ad- 
ministrators. From the beginning, decentralization was the keynote 
of NYA administrative policies, and within a framework of broad 
national program policies and regulations, the State offices were given 
wide latitude for independent judgment and initiative. When Mr. 
Williams assumed the full-time responsibilities of NYA Administra- 
tor on December 24, 1938, the administrative and functional organiza- 
tion of the Washington office became more specifically defined. The 
following principal divisions or offices were established : Division of 
Work Projects, Division of Finance and Statistics, Division of Em- 
ployment, and Director of Negro Affairs. The student work pro- 
gram was under the general direction of a special assistant. 22 

On July 1, 1939, when the NYA was separated from the WPA and 
became a part of the Federal Security Agency, the National Youth 
Administrator was authorized by the ERA Act of 1939 to determine 
the policies and direct and coordinate the activities of the agency. 
The Washington office was then organized as follows : 

1. Office of the Administrator and Deputy Administrator. — This 
office included the functions of budget planning and administrative 
personnel ; and offices of Negro affairs, health, national advisory com- 
mittee, and information. The NYA now assumed responsibility for 
all the functions and services previously performed by the WPA. 23 

2. Division of Work Projects. — The Division was responsible for 
the establishment and operation of the work project program for un- 
employed out-of-school young persons in the States and Territories. 

3. Division of Youth Personnel. — This Division had responsibility 
for the policies and regulations governing recruitment, assignment, 
transfer, separation, and related actions involved in the certification 
and employment of all youth workers employed under the out-of- 
school work program. 

21 NYA Bulletin No. 1, Preliminary Statement of NYA Program, October 2, 1935 ; and 
Handook of Procedures of NYA, ch. II, September 1, 1938. 

22 Y-Letter No. 72, May 1, 1939. 

23 NYA Handbook of Procedures, ch. II, August 1, 1940. 



FINAL REPORT, FISCAL YEARS 1936-19 43 



33 



4. Division of Finance and Statistics. — This Division developed 
and maintained a continuing system of budget analysis and control; 
provided standards to regional directors and State administrators with 
respect to the operation of regional and State office budgets; estab- 
lished financial and statistical policies and procedures at the national, 
regional, State, and local levels of administration. 

The Statistics Section was the center for all systematic reporting 
and statistical information. Its principal objective was to provide 
sufficient data to permit intelligent appraisal of operations by the 
-staff while keeping reporting to a minimum. 

5. Division of Student Work. — This Division carried out the ad- 
ministration of the student work program and formulated the poli- 
cies governing the work program for students employed under this 
program. 

There were no significant changes in the over- all national office 
organization during the next 2 years, ending June 30, 1942. During 
the fiscal year ending June 30, 1943, modifications in organization 
were as follows : the Division of Work Projects was renamed the Divi- 
sion of Operations; a Division of Property and Procurement was 
established March 1, 1943, which performed functions heretofore per- 
formed by the United States Treasury Department ; offices of labor 
relations, project planning and resident centers, and co-ordination 
and review were established. The functions of the offices of health 
and information were absorbed by other divisions. 24 

Administrative or line personnel, and technical or policy and pro- 
cedure personnel were both essential to the planning, development, 
and execution of the variety of projects undertaken by the NYA. In 
a decentralized organization carrying on several types of technical 
operating activities, relations between staff and line officials presented 
complex problems of administration. For example, technical and 
research staff tended to become involved directly into the operations 
of the NYA program. 

Although there were deviations in actual practice from time to time, 
the general administrative principle followed was that line officials 
were responsible for actual operations, and technical personnel were 
to advise and work with the line officials in the development and appli- 
cation of appropriate policy or procedure. The technical staff at the 
national level worked directly with their counterparts at the regional, 
State, or local levels in connection with technical advice or guidance, 
but all major recommendations were transmitted through the operat- 
ing line from the Administrator at the national level to the regional, 
State, or area officials at the operating level. Program planning was 



24 Ibid., Revised 1'943. See appendix B, table 4, for number of national office administra- 
te employees, fiscal years 1940-43. 



34 



NATIONAL YOUTH ADMINISTRATION 



based upon continuing research on actual program requirements, not 
on research of a theoretical nature. The fact that technical staff 
worked with their counterparts at all levels resulted in early aware- 
ness of local and State conditions which enabled NYA to adjust 
national policies quickly to changing conditions. 

Policy and Procedure Formulation 

Since the National Youth Administration operated on a highly 
decentralized basis, the problems of central coordination, including 
the establishment and maintenance of uniform policy throughout the 
organization, and the control of program development, so as to insure 
the attainment of objectives at all levels, constituted a most significant 
administrative consideration. Necessarily there was a great deal of 
dependence on written instructions and procedures. Such procedures 
and regulations were based on and implemented the yearly appropria- 
tions acts and also the administrative orders issued by the National 
Youth Administration, with the approval of the Federal Security Ad- 
ministrator (or Chairman, War Manpower Commission), to carry out 
the provisions of the appropriation act and set forth the basic regula- 
tions of the NYA programs. The NYA Handbook of Procedures, first 
issued in 1938, contained basic administrative regulations, instructions, 
and guides for the operation of all phases of the program. In addi- 
tion, a Manual of Finance and Statistical Procedures provided the 
framework for the handling of the extensive finance and statistical 
functions resulting from a Nation-wide program of such huge pro- 
portions. The Handbook of Procedures and the Manual of Finance 
and Statistical Procedures were supplemented by "Y-Letters," 25 Tech- 
nical Bulletins, and general memoranda. A coordination and review 
section was responsible for the integration and editorial presentation 
of procedures and forms proposed by all divisions and offices. General 
organizational and administrative planning was a function reserved 
for the office of the Administrator, usually with the technical assistance 
of the personnel office. 

Regional Organization 26 

In 1936 five regions were established corresponding to the WPA 
regions, and a representative for each region was appointed by the 
Administrator to advise State youth administrators concerning NYA 
activities developed in other States as. a method of interstate exchange 
on program progress, assist them in carrying out the policies formu- 

25 Y-Letters, which were numbered in serial order, antedated the Handbook of Proce- 
dures ; they contained material which might have continuing applicability but was not 
considered sufficiently significant for incorporation into the Handbook of Procedures, as 
well as regulations issued on a tentative basis pending release of final procedures. 

26 See appendix B, table 4, for number of regional office administrative employees, fiscal 
years 1941-43. 



FINAL REPORT, FISCAL YEARS 1936-1943 



35 



lated by the Administrator, and represent the Administrator in 
effectively supervising the prosecution of the NYA program by the 
State officers. They acted as a liaison between the national office and 
the respective State offices in the five regions, which were as follows : 

Region I : Connecticut, Maine, Massachusetts, New Hampshire, 
New York State, New York City, Rhode Island, and Vermont. 

Region II : Delaware, District of Columbia, Illinois, Indiana, Ken- 
tucky, Maryland, Michigan, New Jersey, Ohio, Pennsylvania, West 
Virginia, and Wisconsin. 

Region III: Alabama, Arkansas, Florida, Georgia, Mississippi, 
Louisiana, North Carolina, South Carolina, Tennessee, Virginia, and 
Texas. 

Region IV: Colorado, Iowa, Kansas, Minnesota, Missouri, Mon- 
tana, Nebraska, New Mexico, North Dakota, Oklahoma, South Da- 
kota, and Wyoming. 

Region V : Arizona, California, Idaho, Nevada, Oregon, Utah, and 
Washington. 

Beginning with the fiscal year July 1, 1940, the regional offices were 
organized to correspond with the functional staff organization of the 
national office. The regional directors acted as the official represent- 
atives of the NYA in their respective regions and were responsible 
for the direction and coordination of the program within the region 
in accordance with the policies and regulations prescribed by the 
national office. Regulations and instructions issued by the Admin- 
istrator, or his authorized representatives, were transmitted directly 
to State administrators, with copies forwarded to the regional office. 
Communications from State administrators to the national office 
were transmitted directly with copies to the appropriate regional rep- # 
resentative. Reports by regional staff members were sent direct to 
their respective national director, with copies to the regional repre- 
sentative and, where appropriate, to the State youth administrator. 27 

With the advent of the war production training program for out-of- 
school unemployed youth 16-24 years of age, and a simultaneous severe 
cut in appropriations for the fiscal year 1943, the NYA organizational 
structure was drastically modified. In view of the limitation of funds 
for administrative purposes, and in order to relate the NYA adminis- 
trative organization to the regional organization of the War Man- 
power Commission, all State offices were abolished and 11 regional 
offices were established as follows : 

Region I : Maine, New Hampshire, Massachusetts, Vermont, Rhode 
Island, Connecticut, New York. 28 

27 NYA Handbook of Procedures, Organization of the NYA, ch. II, sec. 3, 1940. 

28 The NYA regions were numbered to correspond with the regional offices of the War 
Manpower Commission and the Federal Security Agency, except that region II, New York, 
was combined in NYA region 1. 



566597 — 44 4 



36 



NATIONAL YOUTH ADMINISTRATION 



Region III : New Jersey, Delaware, Pennsylvania. 
Kegion IV : District of Columbia, North Carolina, Virginia, Mary- 
land, West Virginia. 

Region V : Kentucky, Ohio, Michigan. 
Region VI : Indiana, Illinois, Wisconsin. 

Region VII : Georgia, South Carolina, Alabama, Tennessee, Florida, 
Mississippi. 

Region VIII : Minnesota, Nebraska, North Dakota, South Dakota, 
Iowa. 

Region IX : Missouri, Arkansas, Oklahoma, Kansas. 

Region X : Louisiana, Texas, New Mexico. 

Region XI : Montana, Wyoming, Idaha, Utah, Colorado. 

Region XII: California, Oregon, Washington, Nevada, Arizona. 29 

The regional director became the regional youth administrator and 
was given the responsibilities heretofore assigned to the State admin- 
istrator. He directed the war production training program in each 
State in his region through a sj^stem of individual war production 
training projects under the supervision of project managers. 30 

The regional youth administrator was responsible to the National 
Administrator for conformance with national policies, standards, 
regulations, and procedures. The regional office organization was 
set up to conform with the divisions and functions of the national 
office. 31 

State Offices 32 

State youth administrators 33 were appointed in each State, the 
District of Columbia, and New York City by August 1935. 34 The 
State administrators were appointed by the National Administrator 
and responsible to him. In accordance with the policy of decentral- 
ization, each State youth administrator had full responsibility for 
the operation of the NYA program in his State in accordance with 
general policies and procedures established by the Washington office. 

During the period that the NYA was part of the WPA, the State 
youth administrations utilized as many of the existing facilities of 
the WPA as possible in order to avoid unnecessary duplication of 
personnel and services. 

29 Arizona was placed in region XII instead of region XI, effective October 1, 1942 
{Handbook of Procedures Memorandum, September 30, 1942). 

30 Witb the abolition of State offices, war production projects were established as a unit 
or units of work training and service activity at one or more work locations within a defi- 
nitely prescribed geographic area. See State organization, p. 37. 

31 NYA Handbook of Procedures, ch. II, sec. 3, Revised September 30, 1942, and March 1, 
1943. 

32 See appendix B, table 4, for number of State office administrative employees for fiscal 
y«ars 1940-43. 

33 The title of State youth director was changed to administrator when Mr. Aubrey Wil- 
liams was appointed NYA Administrator on December 24, 1939. 

34 Administrators were named later for Alaska, Hawaii, and Puerto Rico. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



37 



The State administrator was authorized to employ a State adminis- 
trative staff, including the personnel of local NYA offices, and the 
necessary technical, stenographic, and clerical help. The amount of 
the administrative budget and the general schedule of salaries for 
NYA administrative employees were subject to the approval of the 
Washington office. The members of the State staff were assigned 
functions analogous to the divisional functions of the Washington 
office. The State youth administrator was responsible for the de- 
velopment and approval of NYA projects within the limitation of the 
funds available and in accordance with national policies and regula- 
tions. 35 

There were no basic changes in the responsibilities and authority of 
the State youth administrators until July 1, 1942, when the office of 
the State youth administrator was abolished due to the limitation of 
administrative funds for that year and changes in the program. 36 
During the last year of operation, there was no level of supervision 
between the war production training project and the regional office. 
A project manager was named, with jurisdiction over each of the war 
production training projects. A project consisted of one or more 
work locations within a definitely prescribed geographic area, which 
geographic area could be as large as a State. As mentioned in the 
foregoing description of the regional organization, project managers 
were responsible to the regional youth administrators. 

Local Offices 

The State youth administrators were responsible for the establish- 
ment of such local NYA offices as were required to facilitate the 
administration of the local program, in particular the out-of -school 
work program. The intrastate organizations varied within a wide 
latitude of individual determination of the State administrators dur- 
ing the period the NYA was within the framework of the WPA. 

During the first 6 years, the State NYA office was represented by 
field supervisory personnel, or representatives, who were appointed 
by the State youth administrator where the size and scope of the 
NYA program warranted, and were assigned to cover prescribed 
geographic areas within the State, with official headquarters estab- 
lished in specific locations within the areas designated by the State 
youth administrator. These field or district representatives of the 
State office were in a supervisory capacity over all local project opera- 
tions prosecuted through the area offices. They were not assigned 
operating functions but were the liaison representatives between the 

35 NYA Handbook No. 1, Preliminary Statement of NYA Program, October 2, 1935 ; and 
NYA Handbook of Procedures, ch. II, for subsequent years. 

36 See Regional Organization, p. 35. 



38 



NATIONAL YOUTH ADMINISTRATION 



State administrator and the area offices, which locally were responsible 
for the prosecution of youth work projects. 37 

In order to achieve a more efficient organization in each State, dis- 
trict representatives were eliminated from the State organizational 
structure by direction of the National Administrator on March 12, 
1941, 38 and thereafter there was no level of administration between 
the State office and the area offices. 

The area office, which was the point of project operation from the 
time the out-of -school work projects program was placed in operation 
early in 1938, was responsible for the prosecution of projects, the 
selection and employment of youth, and the discharge of field finance 
functions. The maximum number of area offices which could be 
established within a State was delineated by the National Adminis- 
trator in March 1941 in accordance with two over- all classifications in 
which the States were grouped. The maximum number of area offices 
for classification A was 6; and 10 for classification B. 39 These 2 
groupings were determined on the basis of geographic factors and 
density of population. The State youth administrators were in- 
structed to establish area offices after careful consideration of the 
limitations of funds available to staff the offices adequately, and upon 
the basis of factors indicative of work load, such as number of youth 
employed; number, variety, and geographic distribution of projects; 
number and distribution of institutional contacts; geographic size; 
and transportation and communication facilities. The regional 
director reviewed the determination of areas by the State youth 
administrators, and final approval of the national office was required 
before establishment of area offices. Area directors were appointed 
by State administrators. Each area director was assisted by staff 
members administratively responsible to him, but required to follow 
the technical standards of the appropriate divisions in the State office 
in performing their functions. Normally, the area director's staff 
included area officers as follows: (1) Area work projects officer; (2) 
area youth personnel officer; (3) area finance officer; (4) area student 
work officer. 

Working under the area directors were the supervisors of the 
specific work projects for unemployed out- of -school youth. Project 
supervisors were selected by the area director, subject to formal ap- 
proval by the State administrator. 

It was at the area or local level that the NY A project program 
actually went into operation. Public and quasipublic agencies were 
obtained to co-sponsor work projects of value to the community which 
gave unemployed youth desirable work experience. Local commit- - 

37 NYA Handbook of Procedures, ch. II, see. 5, August 1, 1940. 
38 /6i(7., Revised March 1941. 
39 Ibid. 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



39 



tees were selected to integrate the projects into the community, and to 
assist in developing projects to meet the needs of the youth who were 
unemployed. The planning, control, and actual operation of work 
projects took place locally; the assignment of youth to projects was 
carried out locally; and opportunities for private employment of 
NYA youth workers were developed locally. The NYA work projects 
program was valid and worthwhile only to the extent the local area 
directors or supervisors were able to make it so. They were the per- 
sons who put a work project into operation, kept the project operating, 
and met the day-to-day problems which arose. Largely through their 
efforts, the NYA became part of the community, was guided by com- 
munity needs, and a variety of sound work experiences was provided to 
the individual youth in the community. Local NYA officials also 
helped to secure recreational outlets for NYA project youth, special 
training courses in the schools, and physical examinations and medical 
attention, all of which are frequently unavailable to members of low- 
income families. 

Project Managers: 1942-43 40 

At the beginning of the fiscal year ending June 30, 1943, the State 
youth administrators and all area offices were eliminated, and the 
regional offices became responsible for the direction and coordination 
of the war production training projects through project managers. 
The project manager was immediately responsible for the entire opera- 
tion of a war production training project. A war production training 
project varied in size and jurisdiction, with an entire State designated 
as the maximum geographic size. A work location was the site at 
which one or more work training units and service activities were 
conducted. A work unit was identified as a single type of work train- 
ing, such as machine shop, foundry, sheet metal, forging, etc. (One 
■or more work units might operate at a work location.) A service 
activity was defined as a "subsistence" activity, or a "property, trans- 
portation, and maintenance 1 ' activity. Thus the war production train- 
ing project included the functions previously performed by several 
area offices. The project manager assumed the over-all management 
and direction of project activities and the coordination of the activities 
of project officers responsible for the performance of youth personnel, 
finance and statistics, operations, and property and procurement func- 
tions, as well as the supervision of the project personnel, both resident 
and nonresident. 

State Advisory Committees 

State advisory committees, approved by the National Administra- 
tor, were appointed by the State administrator. The State advisory 

40 Ibid., revised November 27, 1942. 



40 



NATIONAL YOUTH ADMINISTRATION 



committees were composed of unpaid members representing labor r 
business, agriculture, education, other organizations, and minority 
groups concerned with the problems of youth. There were advisory 
committees in each State, New York City, the District of Columbia, 
and Hawaii. An analysis made in 1940 of the membership of State 
advisory committees showed that of 811 persons serving on the various 
State committees, education was represented by 218, business and 
industry by 122, labor by 80, agriculture by 66, youth by 75, and 
Negroes by 46. The work of State committees is summarized as 
f olfows : 41 

1. Initiation of State- wide projects in which the local committees 
participated. 

2. Providing leadership and coordination to local committees par- 
ticipating in projects. 

3. Consideration of NYA problems as submitted by State admin- 
istrators, the effect of NYA policies at the State level, and undertaking 
to meet specific problems such as relations with labor, youth employ- 
ment, opportunities for Negroes and projects for training girls. 

Local Advisory Committees 

As part of the NYA policy which carried over from the Federal to 
State and local levels, local advisory committees were appointed to 
consult the local NYA officials on the types of work projects which 
provided the best work experience to prepare the unemployed and 
inexperienced youth for private employment. 

Local committees were made up of citizens who had an interest in 
the youth of their communities. They functioned in rural and urban 
areas, cities, towns, and villages. Local advisory committees were 
appointed in relationship to the types of work projects established 
locally, and were factors throughout the entire program in securing 
local cosponsorship, local contribution of funds, maintaining com- 
munity interest in the NYA work program, obtaining facilities, and 
arranging for recreational outside activities for NYA project 
employees. 

The local committees varied in number from year to year in rela- 
tionship to project activities. In 1937, there were 2,000 local com- 
mittees with a total membership of about 25,000; in 1940, there were 
1,864 with a membership of 14,650 ; and in May 1942, there were 940 
active local committees. 

The importance of local advisory committees cannot be overem- 
phasized. Throughout the life of the NYA they played a major role 
because they had their fingers on the pulse of youth problems in their 



41 Report of the Office of the National Advisory Committee of the National Youth Ad- 
ministration (from November 1940-July 1942), June 30, 1942, p. 10. 



FINAL REPORT, FISCAL YEARS 1936-1943 



41 



local communities. The local committees brought the NYA to the 
community, and in turn brought the community into a participating 
partnership with an agency of the Federal Government. They were 
the medium through which local citizens assumed necessary local 
responsibility in regard to matters affecting young unemployed people 
and were throughout a guarantee of the democratic character of the 
National Youth Administration. 

Appointment of Personnel 

As an "emergency agency" while part of the Works Progress Admin- 
istration, and later by specific provision in appropriations acts, the 
Administrator was permitted to appoint personnel and administer 
personnel matters without regard to civil-service laws or the Classifica- 
tion Act of 1923, as amended. 42 

This discretion, vested in the National Youth Administrator, for 
the handling of personnel matters was delegated by him to the State 
youth administrators (and later the regional youth administrators). 43 
They, in turn, passed on to the local level much independent respon- 
sibility for the handling of individual personnel actions. Such wide 
latitude on the questions of personnel allowed great flexibility in 
operations and permitted the appointment of staff with a minimum of 
procedural delay. 

The diversity of approach permitted by this policy occasioned in- 
consistencies in the handling of important phases of the personnel 
function, which were not in complete accord with sound public admin- 
istrative and personnel practices. This was especially true in the 
questions of classification, leave, employment standards, and employee 
relations, principally due to the limited experience of State adminis- 
trators, as well as local supervisors, in Government personnel matters, 
and to the lack of trained personnel officers on many field staffs during 
most of this period. 

Subject to general policies and standards, the State youth adminis- 
trators (and later the regional youth administrators) were responsible 
for the establishment of systematic personnel programs and practices, 
including the establishment and continuing operation of classification 
and compensation plans that would insure equitable treatment of all 
employees according to the precept of "equal pay for equal work." As 
the program developed, and especially after 1941, the field offices 
looked increasingly to the national office for guidance in personnel 

42 The agency was to be covered under the Civil Service Act by Executive order issued 
as result of the Ramspeck Act (Public Law 880, 76th Cong., approved November 26, 1940), 
but Congress placed specific language in the Appropriation Act of 1942 preventing this- 
action. (See also par. 14 of the Labor-Federal Security Appropriation Act, 1943.) 

43 As an exception to this rule, certain specialized types of personnel actions, and actions 
involving key regional and State personnel always required prior national office review. 



42 



NATIONAL YOUTH ADMINISTRATION 



matters and for the promulgation of uniform standards in classifica- 
tion, employees relations, leave, employment qualifications, and 
methods of documenting personnel actions. Personnel standards were 
more uniform after inclusion of the NYA in January 1942 under the 
Retirement Act, 44 the Federal employee reporting system, and the War 
Transfer procedures. 45 

Because the appropriations acts usually made a distinction between 
expenditures for administrative and project supervisory purposes, and 
owing to the prevailing wage tradition in many of the occupations 
from which project supervisors and shop foremen were drawn, dif- 
ferent approaches were followed in the handling of personnel matters 
for emploj^es in the State and regional administrative offices and for 
those working directly at the local levels. Project supervisory per- 
sonnel were not appointed on a relief basis. Administrative em- 
ployees 46 were compensated according to the standards set forth in 
Executive Order No. 6746, dated June 21, 1934, and were paid on an 
annual rate basis with regular annual- and sick-leave privileges. 
Project supervisory employees on the other hand were in most cases 
paid on a monthly or per diem rate basis. The system followed for 
project supervisory employees varied among the States until uniform 
procedure was established through various National Administrator's 
orders. Finally, Administrative Order No. 22, dated February 10, 
1943, placed all NYA employees on an annual salary basis except those 
whose work schedule was intermittent or irregular and were thus to 
be paid on a per-diem basis. This differentiation in treatment of ad- 
ministrative and project supervisory employees occasioned certain 
differences in opinion as to the status of persons paid from project 
supervisory funds. Until 1942, the United States Civil Service Com- 
mission ruled that only NYA employees paid from appropriations for 
administrative expenses were "employees of the Federal Government," 
while those paid from project supervisory appropriations were not 
to be considered as Government employees. On July 27, 1942, the 
commission advised the NYA that upon reconsideration it had de- 
termined that all employees of the NYA were subject to the Civil 
Service Retirement Act (and hence to be regarded as Government 
employees) with the exception of youth workers and students re- 
ceiving aid under the student work program. As a result, NYA em- 
ployees may obtain service credit under the Retirement Act for all 
NYA experience back to the beginning of the agency in 1935. 47 

44 Public Law No. 411, 77th Cong. 

45 Executive Order No. 9063, February 16, 1942. 

46 While positions in the Washington office were not subject to the Classification Act, the 
-standards of that act were administratively applied to such positions. 

47 Each appropriations act carried the provision that "appointments in any State to Fed- 
eral positions of an administrative or advisory capacity * * * shall be made from 
among the bona-fide citizens of the State so far as not inconsistent with efficient 
administration." 



'Ill' 

The Student Word Program 

The American tradition of education has been to provide for every 
individual, regardless of economic status or social position, free op- 
portunity for intellectual growth and cultural development through 
a comprehensive school system of public education. 1 Public education 
has been an accepted part of this country's democratic development, 
and is acknowledged as of fundamental importance to the continued 
achievement of the democratic way of life. 

In spite of the fact that the tradition of equal educational opportu- 
nity has existed, it has not been established in practice. Wide dif- 
ferences exist in the quality and the extent of educational opportuni- 
ties offered by the 48 States. 

The public educational system has been confronted with problems 
of adjustment arising out of economic and social changes. The local 
communities and the States have been largely responsible for the 
financial support of the public school system, and this ability to finance 
educational services in many cases has fallen behind the needs. The 
educational requirements of youth have increased with changing in- 
dustrial and occupational trends, and the growing complexity of 
agriculture. Enrollments have increased enormously in the last 50 
years ; school attendance laws have been passed in all the States. In 
1936, approximately two-thirds of the States required attendance to 
the age of 16, six until the age of 17, and five until the age of 18. 2 

The concentration of the population in urban areas, and regional 
and community differences in economic resources have resulted in 
differentials in the school systems. The inequalities of educational 
opportunity have been to a considerable extent a result of the unequal 
distribution of the population, the differences existing between re- 
gions and communities as to their ability to support local educational 
institutions through local and State revenues, and the differences in 
the levels of living and income existing within communities them- 
selves. Millions of young people have been unable to obtain anything 
more than a meager and limited formal education because of where 
they live, or because of the size of the family in which they were 
born, and the inadequacy of the families' incomes. 

The purpose of this chapter is not to discuss the inequalities of 

1 Newton Edwards, Equal Educational Opportunity for Youth, a Report to the American 
Youth Commission. (Washington: American Council on Education, 1939), pp. 147-152. 

2 Ibid., p. 18. 

43 



44 



NATIONAL YOUTH ADMINISTRATION 



public education, but to point out the national need which existed to 
provide financial assistance to young people from low-income families 
In order to enable them to continue their education. Actually, equal- 
ity of educational opportunity will not exist until the sons and 
daughters of the tenant farmers of the south, the coal miners of 
Pennsylvania, and the lowest paid workers living in industrial areas 
are enabled to acquire an education in relation to their needs, interests, 
and mental capacities. 

Educational Level of Out-of-Scbool Youth 

The failure of the secondary school to reach and hold students was 
brought into sharp perspective during the years of economic depres- 
sion. Studies which were made of the educational status of youth on 
relief revealed that a large percentage had not gone beyond the ele- 
mentary school level. For example, in May 1935, out of 1,727,000 
urban youth on relief between the ages of 16 and 25, only 45 percent 
had attended school beyond the grade school level, while less than 3 
percent had entered college. 3 A study conducted by the American 
Youth Commission of the conditions and attitudes of young people 
in Maryland between the ages of 16 and 24 showed that of almost 
11,000 out-of -school youth interviewed, the following grade level was 
attained : 

School grade completed: Percentage of youth 
Eighth grade or below 39. 1 

Less than sixth 6. 8 

Sixth 6. 8 

Seventh . 14. 

Eighth 11. 5 

Ninth, tenth, or eleventh grade 23. 7 

Ninth 9. 8 

Tenth or eleventh 13. 9 

Eleventh or twelfth grade 26. 5 

Eleventh-grade graduate 9. 2 

Twelfth-grade graduate 17.3 

Beyond high school 10. 7 

1 year beyond high school graduation 3. 3 

2 or 3 years beyond high school graduation 3. 8 

4 or more years beyond high school graduation 3. 6, 

All out-of -school youth 100.0 

3 Youth on Relief, prepared by the Division of Social Research, Works Progress Adminis- 
tration, National Youth Administration (February, 1936), charts III and IX. 



FINAL REPORT, FISCAL YEARS 1936-1943 



45 



According to this study, out of every 20 youth, 8 had never gone be- 
yond the eighth grade ; 5 had entered high school but had not grad- 
uated ; 5 had left school after high-school graduation ; and 2 had re- 
ceived some education after high school. 4 The factors affecting the 
amount of schooling these youth received were largely economic, as 
indicated by the reasons given for leaving school by 54 percent of the 
youth, namely, lack of family funds, need for work, and desire to earn 
their own money. Only 25 percent indicated lack of interest in 
school. 5 

The quality and amount of schooling a young person receives de- 
pends to a considerable extent upon where he lives. Almost three- 
fourths of the money spent for public elementary and secondary 
education in the United States comes from the taxation of property. 
There are wide differentials in funds available for teaching staffs and 
school facilities between regions and communities. Funds for pub- 
lic education are usually much smaller in rural areas; and school 
buildings, equipment, and teachers are usually inferior to the urban 
areas. Moreover, the rural school year is frequently shorter than 
in urban areas. 

The following illustrates some differentials in funds spent by 
States for school purposes. New York State's school expenditures 
for the year 1935-36 averaged $134.13 for each pupil in actual attend- 
ance and $95.08 for each child 5 to 17 years old. In the same year, 
Arkansas spent $24.55 per actual pupil and $15.82 per child 5 to IT. 
Yet, in relation to its financial ability, Arkansas was spending more 
money per child than New York. Mississippi, the least able finan- 
cially of the 48 States, spent $20.13 per child of school age in 1935-36 ; 
yet Mississippi was making more than twice the financial effort pro- 
portionately that New York was. If Mississippi had spent no more 
than New York in relation to its financial ability, it would have spent 
less than $10 per child. In proportion to financial ability, every 
Southern State in 1935-36 was spending more per child on education 
than were such relatively affluent States as Delaware, Nevada, New 
York, California, New Jersey, Massachusetts, Connecticut, Oregon, 
and Rhode Island. 6 

Cost of School and College Attendance 

In communities supporting a reasonably adequate school system, 
the youth of limited means still faced the problem of meeting the 

4 Howard M. Bell, Youth Tell Their Story. (Washington: American Council on Educa- 
tion, 1938), p. 56. i 
8 Ibid., pp. 63-64. 

fl Betty and Ernest K. Lindley, A New Deal for Youth. (New York : Viking Press, 1938), 
p. 194 ; also Payson Smith and Frank W. Wright, Education in the Forty-Eight States, 
Staff Study No. 1. (Washington : Advisory Committee on Education, U. S. Government 
Printing Office, 1939), pp. 14-17. 



46 



NATIOXAL YOUTH ADMINISTRATION 



cost of attending the free public high school. Even though there may 
be no charge for tuition, attendance at high school requires an outlay 
of money by the pupils and their families. The higher educational 
level young people attain, the costs of school attendance that are not 
ordinarily met through public funds become larger. The financial 
status of families and of individuals thus becomes one of the most im- 
portant factors in determining whether a young person shall remain 
in high school to the completion of the course, and is more often than 
not the determining factor when college attendance is under consider- 
ation. 

Many of the most valuable activities of the school are still called extra-curri- 
cular, and are maintained not out of public funds, but only through more or less 
obligatory contributions from pupils and such other means as sales of admission 
tickets. Often, too, it is necessary for the pupil to purchase his own equipment 
for participating in these activities. Pupils possessing no money for these pur- 
poses are generally denied access to many of the most fruitful and stimulating 
experiences in the school career, and are effectively assigned to the lower social 
class even by associates of their own age. Not infrequently, this deprivation of 
status contributes to a feeling of dissatisfaction and distaste which is the actual 
cause for leaving school. 7 

Youth from low-income families found the purchase of clothes, shoes, 
books, transportation, lunches, school supplies, and activity fees in- 
surmountable economic barriers. College attendance was out of 
reach entirely, unless work and wages independent of the family in- 
come could be secured. 

Between 1920 and 1930 college attendance had almost doubled, in- 
creasing from 600,000 in 1920 to 1,100,000 in 1930. 8 Since many col- 
leges are situated in small communities, jobs of a part-time nature did 
not increase in proportion to the number of students seeking them. 
The problem of finding work while attending college was accentuated 
by the depression which forced a rapid decrease in the number and 
quality of job opportunities open to youth as a means of financing the 
fixed costs of college attendance. 

Between 1932 and 1934 college enrollments, responding to the early 
ravages of the depression, declined 10 percent. The withdrawal of 
each youth from college added one more job seeker to the millions of 
unemployed. The necessity of keeping young people in schools and 
colleges became a national problem, which was important not only as 
an educational policy but as a labor policy. 

Origin of Federal Aid to Needy Students 

Confronted with a situation in which every youth of school age who 
discontinued his education prematurely for economic causes became 



''Youth and the Future, op. cit., pp. 121-122. 

8 Payson Smith and Frank W. Wright, op. cit., p. 163. 



FINAL REPORT, FISCAL YEARS 1936-19 43 



47 



a competitor in an over-crowded labor market, educators and Federal 
Emergency Eelief officials early in 1933 began to explore the possibil- 
ities of aid to college students. In determining how such aid should 
be made available, full consideration was given to the traditional 
methods which institutions had employed in assisting students, 
namely, student loans and scholarships. 

Student loans have long been a method of financing advanced 
schooling, and there is no question but that "loans to selected students 
at moderate interest rates have proved good financial risks." 9 Limit- 
ations of the loan plan, however, for assisting students were such as to 
exclude great numbers of the most needy, since the prerequisite of ne- 
gotiating most student loans was a resident status on the college 
campus, as well as a scholastic and financial rating. This precluded, 
as a general rule, the possibility of first year students being given 
financial assistance through this means. The lack of family financial 
resources thus militated against students of low-income groups nego- 
tiating loans. 

A second method of aiding students had been that of scholarship 
awards. Inherent in the policy of distributing scholarships, how- 
ever, had been the practice of limiting such funds only to students of 
outstanding scholastic achievement. Educators consistently had 
taken the position that "provision of aid should imply that the recip- 
ient is recognized as possessing superior mentality, character, and 
other personal characteristics which make his training an excellent 
social and economic investment." 10 

The traditional criteria upon which loans and scholarships had 
been available restricted college opportunities to a small and se- 
lect segment of American youth. In drafting plans for a program 
of Federal aid, scholarship and loan plans were discarded in favor 
of a broader and more democratic base which would permit financial 
assistance to needy students who could do satisfactory college work. 

The program that emerged from the discussions between Federal 
officials and educators provided that Federal assistance to needy college 
students be in the form of wages paid for useful public work. 

An initial experiment was set up at the University of Minnesota in 
the fall of 1933 through funds supplied by the Federal Emergency 
Belief Administration. So successful was this experiment that in 
February 1934, Federal funds were made available through the FERA 
to all institutions of collegiate rank of non-profit-making character for 
the employment of students in need of assistance. Funds were al- 
lotted to colleges on the basis of a $15 a month wage for 10 percent 

9 Education and Economic Well-Being in American Democracy, Educational Policies Com- 
mission. (Washington : National Education Association, the American Association of 
School Administrators, 1201 16th St. NW, 1940), p. 165. 

10 Ibid. 



48 



NATIONAL YOUTH ADMINISTRATION 



of their enrolled students, and approximately 75,000 students were 
employed during the school year. For the academic year 1934-35, 
FEBA funds were authorized for the employment of 12 percent of 
the students enrolled. Since the colleges were allowed to lower the 
$15 monthly wage and thus spread available funds to employ a larger 
number of students, more than 100,000 were given employment. Of 
approximately 1,700 eligible institutions throughout the country, 1,466 
participated in the student program during the first year and one- 
half of its operation. 11 

In August 1935, the Federal program of financial assistance to needy 
students was transferred to the National Youth Administration 
through Executive Order No. 7164, which established rules and regu- 
lations governing employment on student aid projects. Coincident 
with this transfer was an enlargement of the program, extending 
financial aid to elementary and high-school students, as well as college 
and graduate students. 

Student Work Objectives 

Drafted to meet the problem of youth faced with stagnating idleness 
because of lack of funds for continuing their education, the objectives 
of the National Youth Administration's student aid program became 
twofold: (1) To provide youths from low-income families an op- 
portunity for schooling through the performance of useful public 
work; (2) to keep unemployed youth from an overcrowded labor 
market. 

The first objective of the National Youth Administration's student 
work program — providing youth from low-income families with the 
opportunity of earning through work funds to continue in school — 
was based on the premise that equality of educational opportunities 
becomes more of a reality when j^outh are financially able to attend 
school. In the light of evidence that thousands of youth had been 
forced out of schools by lack of funds necessary to purchase an educa- 
tion, this objective could better be attained on the basis of payments 
to individual students for work performed rather than on the basis 
of institutional grants. 

The second objective was to withdraw and withhold untrained youth 
from the labor market. Since able men with families dependent upon 
them were being forced from productive labor to relief rolls, it was 
obvious that by prolonging the education of as many youth as possible, 
thus keeping them out of competition with adults with family responsi- 
bilities, some pressure would be taken off the critical labor problems. 
Furthermore, these youth would be provided educational experience 
which would more nearly assure their economic future. 



11 Youth on the Student Work Program. 
1940), p. 6. 



(Washington : National Youth Administration, 



FINAL REPORT, FISCAL YEARS 1936-194 3 



49 



Organization and Administration of the Student Work 

Program 12 

The student work program of the National Youth Administration 
provided part-time employment to needy students between the ages of 
16 to 24, inclusive, in regular attendance at day sessions of schools, 
colleges, and universities. The student work program operated in all 
States, the District of Columbia, Alaska, Hawaii, and Puerto Rico. 
It had two divisions, namely, the school work program and the college 
and graduate work program. The school work program provided 
part-time work to needy students in institutions which did not require 
high-school graduation or the equivalent for entrance. The college 
and graduate work program provided work and financial assistance to 
needy students in approved institutions requiring as a minimum high- 
school graduation or the equivalent for entrance. Work given to 
undergraduate students or professional students who had not obtained 
their bachelor's degree was known as college work; that given to 
students who had obtained their bachelor's degree or the equivalent 
and were pursuing graduate study was known as graduate work. 

Consistent with the policy of the National Youth Administration to 
develop a decentralized pattern of administration, the student work 
program was designed to operate on the basis of joint responsibility 
between NYA officials and authorities of the participating institutions. 
Consequently, within regulations prescribed to effect proper expendi- 
ture of Government funds, the management of each institution's pro- 
gram was left directly in the hands of the local institution officials. 
Ultimate responsibility for the proper expenditure of student work 
funds rested with the State youth administrators. 

Educational Institutions and the Program 

All institutions, whether at the college or high school level, were 
eligible to participate in the NYA student work program provided 
they operated day sessions, were non-profit-making, tax-exempt, bona- 
fide educational institutions and were certified as such by the principal 
State educational officer. Each institution desiring to participate was- 
required to submit in affidavit form certification of its eligibility on 
the basis of the foregoing criteria. Responsibility for the operation 
of the student work program within each institution was delegated 
by the National Youth Administration to officials of the institution. 
Each participating institution indicated one of its staff to supervise 
the student work program at the institution. He was then officially 
appointed by the State youth administrator to supervise the student 
work program at his particular institution during the academic year. 
In this capacity he served without compensation from the Government. 



12 Prior to the academic year 1940-41, the program was called the student aid program^ 



50 NATIONAL YOUTH ADMINISTRATION 

The selection of workers was made by local school authorities on 
the basis of each student's need for financial assistance to continue his 
education and capacity to perforin satisfactory work. Students who 
desired NYA employment applied to the authorities at the particular 
school which they wished to attend. School officials also planned the 
work at which the students were employed, determined the hours of 
work and monthly earnings of the students within the limits estab- 
lished by national regulations, kept the time of the students employed, 
and prepared the pay rolls for submission to appropriate NYA 
offices where they were processed for payment to the student. 

The institutions furnished supervision, space, and materials for the 
work, together with any additional necessary costs other than the 
wages of the NYA students. Each school planned a work program 
based on its own particular needs. Schools were encouraged, however, 
to fit the work plan into the students' interests and aptitudes, and 
wherever possible to enhance its value by relating it to the student's 
major field of study. 

Democratic participation of non-profit-making, tax-exempt, bona- 
fide educational institutions was assured under the student work pro- 
gram. During the academic year 1939-40, there were 28,301 secondary 
schools and 1,698 colleges and universities taking part in the pro- 
gram, irrespective of the type of institutional control. 13 A survey 
conducted by the national NYA office for the academic year 1940-41, 
showed that of 1,589 colleges and universities participating in the col- 
lege work program, 402 were State-supported ; 239 were controlled by 
municipal or district government ; 294 were privately controlled ; and 
654 operated under denominational control. 

Allocation of Student Work Funds 

At the beginning of each academic year, the National Youth Ad- 
ministration allocated funds to the States for the operation of the stu- 
dent work program on the basis of the following criteria. 

Colleges and universities received funds based on a specified per- 
centage of each institution's total number of resident-undergraduate 
and graduate students 16 to 24 years of age, inclusive, enrolled for 
at least three-fourths of a normal schedule in the day session of the 
institution as of November 1 of the previous academic year. Each 
college and university certified to the Washington NYA office its 
enrollment before allocations of funds were made to the State youth 
administrators for use of the particular institution. A percentage 
figure was multiplied by $15 to establish the tentative monthly fund 
quota for the institution. The percentage of the student enrollment 
varied from year to year in accordance with the amount of funds 



13 See appendix B, table 6 for number of schools, college and graduate institutions par- 
ticipating in the NYA student work program by States. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



51 



available for the college and graduate work program. Unused funds 
were withdrawn from institutions at the close of each quarterly period 
and reallocated to other colleges and universities where it was demon- 
strated that the funds would be used to employ needy college students. 
Fund quotas for colleges and universities were established on the basis 
of the following percentages of enrollment. 

Table 9. — Percent of college enrollments used to establish NY A allocations, 

1935-43 

Year: Percent used Year: Percent used 

1935- 36 12. 1939-40 10. 

1936- 37 12.0 1940-41 9.4 

1937- 38 8. 1941-42 7. 5 

1938- 39 9.3 1942-43 -_ 3.8 

For the school work program each State received an allocation 
which was based primarily on the size of the State's youth population, 
school enrollment, and availability of school facilities. Prior to the 
academic year 1940-41, consideration was given to such factors as 
relief indices. The State youth administrator was notified of the 
amount of the yearly allocation for the school work program and he 
established a quota for each secondary school within the State, after 
consultation with school, relief, and welfare officials. Adjustments 
were made in allocations to individual schools on the basis of special 
needs in the individual States. As in the college and graduate work 
program, unused funds were withdrawn from institutions at the close 
of each quarterly period and re-allocated by the State youth admin- 
istrator to other schools where student needs were greater. 

Special Negro College and Graduate Fund 

While NYA regulations provided that there should be no discrim- 
ination because of race, creed, color, or national origin, additional 
funds were set aside beginning with the academic year 1936-37 to 
provide educational opportunity in a limited number of special cases 
of needy Negro college and graduate students. Eligible Negro stu- 
dents who could not be employed within a particular institution's 
quota for college and graduate work, after the institution had made 
a fair allocation for Negro students from its regular quota, could 
apply for assistance from the special Negro college and graduate work 
fund through the institution which they desired to attend. The col- 
leges and universities then applied, through the office of the State 
youth administrator, to the Washington office for an additional sum 
for Negro college and graduate work. Such requests for special 
Negro funds were given thorough investigation and the allotment of 
funds approved through the State youth administrator to the partic- 
ular institution. The following allotments of funds were made for 
each academic year beginning with 1936-37. 

566597—44 —5 



52 NATIONAL YOUTH ADMINISTRATION 



Table 10. — Special Negro college and graduate fund, by academic years, 1936-43 



Academic year 


Total al- 
location 


Number of 
students 


Academic year 


Total al- 
location 


Number of 
students 


Total 


$609, 930 


4,118 


1939-40 


$105, 030 
111, 105 
96, 795 
53, 595 


778 
423 
717 
397 


1936-37 


1940-41 -.- 


75, 060 
68, 310 
100, 035 


556 
506 
741 


1941-42 


1937-38 


1942-43 


1938-39 





Funds made available to an institution from this special fund were 
treated as increases in the regular allotment to the institution. The 
major portion of this special fund was allotted to Negro colleges and 
universities in the southern States in order to extend to eligible Negro 
youth increased educational opportunities. In the South, there was 
a decided lack of adequate facilities for the college education of 
Negroes. 

Student Work Employees 

Local school and college officials were delegated the responsibility 
for determining eligibility of students to receive NYA student work, 
and selected students for NYA student employment in their respective 
institutions in accordance with broad considerations which were out- 
lined by the NYA national office. These considerations were sub- 
stantially as follows : 

Need. — Each student must have been able to qualify on the basis 
of need for such payments as he received. Officials of each institution 
had to exercise every precaution to make certain that its funds were 
\ not made available to any student who did not produce satisfactory 
; evidence that NYA employment was essential to the proper con- 
tinuance of his education. 

Age. — Students must have reached their sixteenth birthday before 
they might be employed; students who had reached their twenty- 
fifth birthday were ineligible for NYA student employment. 

Character and ability. — Students selected to receive part-time em- 
ployment were required to be of good character and of such ability 
as to assure good scholastic work. Part-time employment was dis- 
continued for those students who failed to maintain a satisfactory 
standing in at least three-fourths of their scholastic work. 

Capacity to perform work. — No person was employed or continued 
in employment if his work habits were such, or his work record showed, 
that he was incapable of performing satisfactorily the work to which 
he was assigned. 

Attendance status. — Students participating in the student work pro- 
gram were required to be regular students carrying at least three- 
fourths of the normal schedule. 



FINAL REPORT, FISCAL YEARS 1936-1943 



53 



Citizenship. — No alien was eligible for any employment which was 
compensated from funds appropriated to the National Youth Ad- 
ministration, and no part of the appropriation was available for pay- 
ment to any person who had not made an affidavit as to his United 
States citizenship. 

Oath of allegiance. — No student was eligible for student employ- 
ment which was compensated from funds appropriated to the National 
Youth Administration unless he executed the oath of allegiance for 
student work employees. 

Advocacy of overthroio of government. — No student who advocated, 
or who was a member of an organization which advocated, the over- 
throw of the Government of the United States through force or 
violence was eligible for any employment which was compensated from 
funds appropriated to the National Youth Administration. 

The institutional officials were responsible for applying the above 
regulations. In carrying out their responsibility for selection of 
NYA students, the heads of the various institutions enlisted the co- 
operation of public and private agencies and individuals in order to 
obtain the information necessary to select the most needy applicants 
for student work. 

Each young person desiring employment under the student work 
program made application for student work on a form established 
by the NYA national office. The applications which were approved 
by the authorized institutional official were submitted to the State 
youth administrator before transmittal of the first student time report 
of the school year. The state youth administrator, or his authorized 
representative, examined carefully the statements made on the NYA 
student application forms and made follow-up investigations when this 
appeared necessary in questionable cases. Special attention was given 
to the item on the NYA student application form which showed 
family income. 

Statistics of Total Employment and Earnings 

In the 8-year period of Federal student aid through the Na- 
tional Youth Administration (1935^3) , it is estimated that more than 
2,134,000 different youth were given financial assistance in remaining 
in schools and colleges to continue their education. The number of 
students aided varied year by year due to the differences in funds avail- 
able to the program. The greatest number of students was employed 
during the academic year 1939-40 when more than 748,000 different 
youth (446,000 school students and 188,000 college and graduate stu- 
dents) were at work on NYA student jobs in 1,698 colleges and uni- 
versities, and in 28,301 secondary schools in every county in the land. 14 



14 See appendix B, table 6 for number of schools and colleges and graduate institutions 
participating in the NYA student work program, by States. 



54 



NATIONAL YOUTH ADMINISTRATION 



The following table gives the estimated number of different students 
employed during each of the academic years, and the estimated 
cumulative total. 



Table 11. — Estimated number of different students employed on the NYA student 
work program, academic years 1935-36 through 1942—43 



Academic year 


By academic year 


Cumulative from 1936 


Total 


School 
work pro- 
gram 


College and 
graduate 
work pro- 
gram 


Total 


School 
work pro- 
gram 


College and 
graduate 
work pro- 
gram 


1935-36 


457, 000 


314, 000 


143, 000 


457, 000 


314, 000 


143, 000 


1936-37 


492, 000 


332, 000 


160, 000 


703, 000 


480, 000 


223,000 


1937-38 


370, 000 


260, 000 


110, 000 


888, 000 


610, 000 


278, 000 


1938-39 


476, 000 


340, 000 


136, 000 


1, 126, 000 


780, 000 


346,000 


1939-40- __ . 


748, 000 


560, 000 


188, 000 


1, 500, 000 


1, 060, 000 


440, 000 


1940-41 


606, 000 


446, 000 


160, 000 


1, 803, 000 


1, 283, 000 


520, 000 


1941-42 


433, 000 


311, 000 


122, 000 


2, 062, 000 


1, 469, 000 


593,000 


1942-43 


121, 000 


76, 000 


45, 000 


2, 134, 000 


1, 514, 000 


620, 000 



The peak average monthly employment under the student work 
program was during the academic years 1939-40 and 1940-41, when the 
average monthly employment was 438,015 and 439,149, respectively. 
The highest monthly average for the school work program was also 
during these 2 years, with an average employment of 317,346 and 
318,953, respectively. Under the college work program, the peak 
monthly average was in the year 1936-37 when 133,850 college students 
were employed. The average employment on the graduate work 
program was highest in 1935-36, with 5,760 graduate students receiving 
NYA assistance. The extent graduate students participated in the 
NYA graduate work program was determined by the president of the 
participating institution, or his designated representative. After the 
academic year 1936-37, there was a tendency on the part of institu- 
tional heads to decrease the number of graduate students receiving 
NYA assistance and increase the number of undergraduate students 
employed on the college work program. This may have resulted in 
part from a shifting of college scholarship funds to the graduate level. 



Table 12. — Average number of students employed per month 1 on the NYA student 
work program, academic years 1935-36 through 1942-43 



Academic year 


Total 


School work 
program 


College work 
program 


Graduate 

work 
program 


1935-36 


315, 750 
403, 123 
301, 858 
365, 843 
438,015 
439, 149 
265, 901 
88, 596 


193, 905 
264, 026 
205, 149 
255, 378 
317, 346 
318, 953 
185, 326 
54, 181 


116, 085 
133, 850 

94, 289 
107, 588 
117, 834 
117, 349 

78, 868 
3 34, 415 


5, 760 
5,247 
2, 420 
2, 877 
2, 835 
2, 847 
1,707 














1942-43 2 









1 The student work program operated on a school-year basis, average number of students employed per 
month, is based upon a 9-month academic year. 

2 June 1943 data not available, average based on previous months. 

3 Includes graduate students as data was not reported separately in academic year 1942-43. 



FINAL REPORT, FISCAL YEARS 1936-194 3 55 



Table 13. — Total earnings of youth employed on the NYA student work program, 
academic years 1935-36 through 1942-43 1 



Academic year 


Total 


School work 
program 


College work 
program 


Graduate 

work 
program 


Total 

1935-36 . _ 


$166, 838, 741 


$73, 560, 465 


$89, 014, 982 


$4, 263, 294 


23, 572, 590 
27, 686, 581 
18, 445, 089 
21, 207, 699 
27, 071, 784 
27, 062, 099 
15, 963, 520 
5, 829, 379 


9, 437, 396 

11, 545, 313 
8, 169, 267 
9, 567, 278 

13, 005, 864 

12, 947, 056 
6, 868, 435 
2, 019, 856 


13, 130, 312 
15, 064, 538 
9, 887, 206 
11, 176, 160 
13, 526, 534 
13, 621, 057 
8, 799, 652 
3, 809, 523 


1, 004,882 
1, 076, 730 
388, 616 
464, 261 
539, 386 
493, 986 
295, 433 


i936-37 


1937-38 


1938-39 


1939-40 


1940-41 


1941-42 


1942-43 * 







1 The discrepancy in totals between table 13 and appendix B, tables 1 and 2, results from supplemental 
pay rolls not included in the above table. The relative distribution of earnings would also apply to funds 
expended as shown in appendix B, table 3. 

2 Excludes earnings for June 1943. 



During the eight years the total earnings of the 2,134,000 different 
students amounted to $166,838,741. Needy school students earned 
$73,560,465; college students earned $89,014,982; and graduate 
students received $4,263,294. 

The employment of so great a number of youth on the student work 
program was largely a result of the high level of cooperation which 
existed between the educational institutions and the National Youth 
Administration, and the integrity with which individual institutions 
carried out their part of the program. 

Distribution of NY A Students by Sex 

There were more young women employed on the school work pro- 
gram than boys. In the academic year 1939-40, girls were 53 percent 
of the NYA students. The percentage increased each year and during 
the academic year 1942-43, girls predominated by more than two to one. 
Under the college work program in the academic year 1939-40, there 
were more men than women, 60 percent being men. 



Table 14. — Percentage distribution of students employed on the NYA student 
work program, by sex, academic years 1939-40 through 1942-43 



Program and academic year 


Total 


Male 


Female 


School work program: 








1939-40 


100.0 


47.0 


53.0 


1940-41 


100.0 


44.4 


55.6 


1941-42 


100.0 


37.1 


62.9 


1942-431 


100.0 


30.6 


69.4 


College work program: 








1939-40 


100.0 


59.9 


40.1 


1940-41 


100.0 


57.4 


42.6 


1941-42 


100.0 


51.6 


48.4 


1942-43 12 


100.0 


41.4 


58.6 


Graduate work program: 








1939-40 


100.0 


74.5 


25.5 


1940-41. . 


100.0 


75.7 


24.3 


1941-42 


100.0 


73.6 


26.4 


1942-43 


( 3 ) 


( 3 ) 


( 3 ) 



1 June 1943 data not available, percentages based on previous months. 

2 Percentages include graduate students for academic year 1942-43. 

3 Not reported separately in academic year 1942-43. 



56 



NATIONAL YOUTH ADMINISTRATION 



As was to be expected because of the approach of war, the percentage 
of men declined each year thereafter and during the academic year 
1942-43 only 41 percent was men under the NYA college work pro- 
gram. Under the graduate work program there were consistently 
many more men than women. While information is not available for 
the academic year 1942-43, for the 3 years immediately preceding, men 
were close to 75 percent of those employed on the graduate work 
program. 

Employment of Other-than-W bite Youth 

Other-than-white youth (principally Negro) were employed under 
the school work program with greater frequency and diminished in 
representation at the college and graduate levels. Information is 
available for 2 academic years, 1939-40 and 1942-43, as to the extent 
other-than-white youth were selected for NYA student work benefits. 
On the school work program in the academic year 1939-40, about one 
out of every eight students was a Negro or other nonwhite youth, 
while in the academic year 1942-43 it was about one out of every five. 

On the college and graduate work program, Negroes and other non- 
white students occurred at the rate of about 1 in 18 for both vears. 



Table 15. — NYA student employment by race, academic years 1939-40 and 1942-43 



Academic year 



1939-40 Total 

White 

Other than white 

1942-43 Total 

White 

Other than white 



School work program 


College and graduate 
work program 


Number 


Percent 


Number 


Percent 


450, 585 


100.0 


162, 765 


100.0 


392, 404 
58, 181 


87.1 
12.9 


152, 550 
10, 215 


93.7 
6.3 


59, 369 


100.0 


39, 358 


100.0 


48, 540 
10,829 


81.8 
18.2 


36, 257 
3, 101 


92. 1 
7.9 



1 Based on a field study conducted during academic years 1939-40 and 1942-43. 

Rates of Pay to NYA Students 

Within limits prescribed by the National Youth Administration, 
school and college officials determined monthly earnings of students 
by fixing both the hourly wage and the number of hours to be worked. 
Through the academic year 1941-42, under the college and graduate 
work program, undergraduate students were permitted to earn from 
a minimum of $10 to a maximum of $20 ; and graduate students from 
$10 to $30. For the academic year 1942-43, the maximum payment to 
each undergraduate or graduate student was established at $25, while 
the minimum payment remained unchanged. Exemptions from the 
minimum monthly payment to college students were occasionally 
granted to specific institutions by the National Administrator upon 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



57 



recommendation of the State administrator. This was done only for 
institutions which enrolled a majority of students from the area in 
which the institution was located and which had a low tuition cost. 
No payments of less than $8 a month were approved. The maximum 
hours of work for NYA undergraduate and graduate student^ were 
8 hours in any 1 day. 

The monthly earnings for each student employed under the school 
work program were established between a minimum of $3 and a 
maximum of $6. The maximum hours of work were set at 4 hours 
a day on school days and 7 hours a day on nonschool days. 

For the entire student work program, the hours worked by NYA 
students were limited to the number of hours which in relation to the 
monthly earnings as established by the institutional officials within 
the minimum and maximum earnings most accurately reflected the 
prevailing rate of pay in the community for the same work. Because 
of the wide variation in hourly rates of pay between institutions, no 
statistics were considered satisfactory in presenting an average hourly 
rate. 

Average Monthly Earnings of NYA Students 

The national average monthly earnings of NYA students during the 
eight years remained fairly constant. NYA school students earned 
between $4.16 and $4.86, except for the academic year 1935'-36, when 
the average monthly earnings were $5.41; college students averaged 
from $11.54 to $12.90 a month; graduate students from $19.23 to 
$22.80. 15 



Table 16. — Average monthly earnings of students on the NYA student work 
program, academic years 1935-36 through 1942-43 



Academic year 


School work 
program 


College work 
program 


Graduate work 
program 


1935-36 „ 


$5. 41 


$12. 57 


$19. 38 


1936-37 


4. 86 


12. 51 


22. 80 


1937-38 


4. 42 


11.65 


17. 85 


1938-39 


4. 16 


11.54 


17. 93 


1939-40 


4. 55 


12. 75 


21. 14 


1940-41 


4. 51 


12. 90 


19.28 


1941-42 


4. 12 


12. 40 


19. 23 


1942-43 i 


4. 66 


2 13. 84 


( 3 ) 



1 June 1943 data not available, average earnings based oq previous months. 

2 Includes the earnings of graduate students. 

3 Not reported separately in academic year 1942-43. 



The average monthly earnings were considerably lower than the 
maximum earnings allowed under national regulations. This re- 
sulted in the main from the spreading of NYA institutional fund 
quotas by the school and college officials among as many students as 
possible. The funds appropriated in relation to the actual need were 



15 See appendix B, tables 11 and 12 for average monthly earnings of student employees 
on the NYA student work program, by States, for academic years 1939-40 through 1942-43. 



58 



NATIONAL YOUTH ADMINISTRATION 



seldom adequate to meet the requests for NYA student work. Even 
in the school term 1942-43, when as a result of war employment family 
incomes had taken a sharp upturn, and when thousands of young 
men and women were being supported on college campuses in military 
service organizations, there were in some places three times as many 
applicants for college NYA jobs as could be provided for. In prewar 
years of greater economic stress, it had run on occasion as high as 
four or five to one. 

The low average monthly earnings of students employed on the 
college work program could seldom defray the total cost of attending 
college. The NYA earnings supplemented the other resources a 
student had when entering college, and represented the difference be- 
tween his continuing his college course and leaving because of lack 
of the necessary cash to defray current expenses. 

Work Performed by NYA Students 

In establishing student financial assistance on a work basis, the 
Federal Government made available to school people an opportunity 
not only to keep needy youth in school, but to experiment in their 
own school laboratory with different kinds of educational work ex- 
perience. The American Youth Commission has stated that "Equal 
in importance with reading, but very different in character, is a second 
means of education that has been neglected because it does not have 
the sanction of traditional school practice. Young people need to 
learn to work. Labor is the lot of man and it has not been recognized 
as it should have been in arranging institutional education." 16 

The National Youth Administration prescribed from the beginning 
that students employed under the student work program must per- 
form useful and practical work, for which payment was made. Em- 
phasis was to be placed on work related to the abilities and major 
interests of the students. The work performed b}^ the NYA students 
had to be supplemental to the regular work of the institution. 
Students could not be assigned to regular classroom instruction or to 
any work which came within the regular budget of the institution, 
which would have resulted in the displacement of workers paid from 
other funds. 

The officials of the participating institution were delegated the 
responsibility of assigning students to suitable work and for super- 
vising work performed by NYA students. The NYA regulations 
definitely stipulated that no student was to be employed or continued 
in employment if his work habits were such, or his work record 



16 What the High Schools Ought to Teach, prepared for the American Youth Commission. 
(Washington: American Council on Education, 1940), p. 15. 



FINAL REPORT, FISCAL YEARS 1936-1943 



59 



showed, that he was incapable of performing satisfactorily the work 
to which he was assigned. ^ 

Since traditionally the American school and college plan was de- 
signed primarily to meet academic needs, it was natural that school 
officials in devising work assignments under the first NYA allocations 
met with difficulty. Job assignments went to two extremes, from the 
highly academic on one hand, to the most menial or "leaf raking" 
type on the other. Academically minded teachers and professors, 
failing to see the guidance and training values of work, often insisted 
that only the most mentally capable youth be assigned to their super- 
vision: the less capable, as judged wholly by academic standards, 
were often shunted into jobs lacking both in purpose and supervision. 

The early rule that NYA jobs should not replace workers previously 
employed by school budgets and the limitation of working hours also 
proved handicaps to many educators in planning and executing work 
programs. Some minor misuses of funds occurred on the part of 
school people, usually due to confusion with details and Government 
procedure, but nonetheless harmful to the program. The staff of 
the National Youth Administration was too small to reach each 
participating institution to assist in working out problems of work 
assignment and supervision, or to develop standards of work per- 
formance. 

Beginning with the academic year 1940-41, the Washington NYA 
office required that each participating institution submit to the State 
administrator on a standard NYA form a proposed work plan which" 
would describe the major types of work to be performed by NYA 
students, specify the type of supervision to be given each activity, 
the number of students to be employed on each work activity, and 
hourly wage rate for each type of work. Any basic deviation from 
the work plan submitted by an institution during the course of a year 
had to be approved by the State administrator. It was further re- 
quired that the work plans be reviewed carefully by the State admin- 
istrator to determine that all work reported was within the scope 
of the NYA regulations. In general, this resulted in improving the 
work activities for NYA students, since each institution gave advance 
thought and planning to the work program. 

Types of Work Activity 

The work upon which NYA students were employed both in high 
school and college, from 1935 through 1943, covered a wide and 
diversified range of activities. These activities may be generally 
classified for summary purposes as follows : 

Construction, repair, and remodeling of buildings and facilities. 

Construction, repair, and remodeling of apparatus and equipment. 

Machine shop and automotive repair projects. 



60 



NATIONAL YOUTH ADMINISTRATION 



Landscaping and improvement of public grounds. 

Health, sanitation, hospital, and clinical assistance projects. 

Clerical assistance projects. 

Library services and book repair. 

Home economics and nursery school projects. 

Reforestation and soil conservation projects. 

Research, statistical and survey projects. 

Classroom and laboratory assistance projects. 

Reproduction and drafting projects. 

Recreational leadership projects. 

Other projects providing valuable work experience. 

As previously indicated, attempts were made to plan work projects 
so as to provide students with experience which would supplement 
their regular school work. This was particularly true in the colleges, 
where science majors, for example, were employed as laboratory as- 
sistants, prospective librarians worked with books, and medical 
students engaged in medical research. 

A 10 percent sampling of 100,000 NYA jobs in every type of partic- 
ipating institution was made in 1942-43 to determine the general 
occupational fields in which NYA college work was being conducted. 

Table 17. — Percentage distribution of college NYA assignments by general 
occupational fields, 1942-43 



Field Percent 

Total 100. 00 



Business and clerical 16. 60 

Science and mathematics 14.71 

Librae science 12. 35 

Public welfare and recreation __ 8. 97 

Engineering 8. 28 

Fine arts 7.66 

Teacher training 5. 30 

Agriculture 4. 86 



Field Percent 

Home economics 4. 64 

Economics, government, soci- 
ology 3. 65 

Medicine and public health 3. 32 

Military science and communi- 
cations 2. 69 

Forestry and conservation 1.28 

General shop work .49 

Unclassified 5. 20 



Under the general fields listed in the above table, students were 
assigned such specific jobs as research work, laboratory assistance, 
equipment construction and repair, shop work, clerical assistance, gen- 
eral construction, public service, public welfare work, and maintenance 
work. 

Examples of NYA Student Work Projects 

For the purpose of this chapter, a small selection of student work 
projects has been made to demonstrate some of the specific types of 
work which NYA students performed in earning their monthly 
wages. 17 



17 Paul B. Jacobson, "Youth and Work Opportunities," The Bulletin of the National 
elation of Secondary-School Principals. (Chicago : The National Association of Secondary- 
School Principals of the National Education Association, 5835 Kimbark Avenue, April 
1940). Serial No. 90, pp. 43-104. 



FINAL REPORT, FISCAL YEARS 1936-1943 



61 



Cancer Research — McArdle Institute, University of Wisconsin 

NYA students at the Medical School of the University of Wiscon- 
sin have done unusual work in cancer research. Through centrifuga- 
tion these young medical students have advanced the knowledge avail- 
able on cancer by determining the substances in normal tissue which 
regulate cell growth, either inhibiting or stimulating such growth. 

Reduction of Truancy — Baylor University and Waco Public Schools, 
Waco, Tex. 

The attendance problems in the Waco public schools have decreased 
considerably as a result of a project initiated under the NYA college 
work program at Baylor University. Ten young men employed on 
college work jobs were assigned to principals in the Waco public 
school system to visit in the homes of underprivileged children of 
school age who had been absent from school and who were maladjusted 
both in the home and in the school. These students reported each 
day to the principal of the school to which they were assigned and 
secured a list of the absentees for that day. They then made contact 
at the home both with the child and his parents in an effort to determine 
the reason for the pupil's absence or lack of interest. 

Remedies for the correction of each child's problem were recom- 
mended by the NYA students to the principal or to the probation 
judge in Waco. Detailed reports were made daily to the judge; once 
each month the students met in conference at Baylor University with 
the judge to discuss the most serious cases encountered that month. Of 
the 1,849 cases handled by the young men, only 1 youth was later sent 
to the Juvenile Training School. 

Most of the young men employed on this project were majoring in 
sociology. The actual case work involved gave them an insight into 
social problems not to be gained in classroom study. Many decided 
upon a career in social service work. The college reports that the per- 
sonality, tact, courtesy, sympathetic interest, and grasp of home en- 
vironment developed by these NYA students would insure their success 
in the field of social work. 

Study of Stream Flow — Ohio State University, Columbus, Ohio 

A work project developed at Ohio State University made a valu- 
able contribution in the field of flood control. Students assigned 
to this project made constant checks on the variation in flow of the 
streams of major importance in Ohio. The data collected were 
compiled and interpreted for use by the Government engineers in 
conservation work and flood control. Recent disastrous floods had 
accentuated the need for such data. Students engaged in this work 
received valuable engineering experience and their work had a high 
degree of sound usefulness. 



62 



NATIONAL YOUTH ADMINISTRATION 



Experimental Orchard — Chaff ey Junior College, Ontario, Calif. 

Six boys were assigned to work in an experimental orchard in the 
development of fruits through cross-pollination. They hoped to 
perfect a peach tree which would withstand any kind of weather. 
The boys, gained experience in pruning, cross-pollination, general 
upkeep of orchards and agricultural experimentation. All of the 
boys assigned to this project were majors in agriculture and were 
vitally interested in their assignments. The work was directly under 
the supervision of the school pomologist. 

Renewal of School Desks — High School, Kenedy, Tex. 

Two hundred old and badly abused desks were renovated and put 
back into service through an XYA school work project at Kenedy 
High School. Kenedy, Tex. 

Nine boys assigned to XYA school work jobs were employed in 
this work. The boys planed down the tops of the desks and sanded 
them with an electric sanding machine. After the desks were 
smoothed and refinished the principal of the school felt that because 
of their work the boys took greater pride in the school furniture and 
that they transmitted this beneficial attitude to other students in the 
school. 

Construction of a 6-inch Reflecting Telescope — High School, Payson, 
Utah 

The construction of a telescope by four boys at Payson High School 
involved the grinding of a 6-inch pyrex glass mirror and the mount- 
ing of the mirror and the prisms. The boys had mechanical ability 
and an interest in physics. The project gave the boys work expe- 
rience which correlated closely with the principles of optics 
taught in physics. The telescope is now used by classes in elementary' 
astronomy. 

Care of the Sick — Lincoln Institute, Lincoln Ridge, Ky. 

Lincoln Institute is a Xegro high school which draws pupils from 
all sections of Kentucky. With practically all pupils living in the 
dormitories, the school had an excellent opportunity for a health 
project as a part of its school work program. 

Two girls were employed under the supervision of the home eco- 
nomics instructor to assist in caring for the sick, in checking and 
dispensing prescribed medicines, and in preparing diets. 

For these girls, chosen because of their particular interest in nursing, 
their XYA employment was preliminary training for a professional 
course in nursing or dietetics. They made many practical applica- 
tions of lessons learned in home economics and in chemistry. The 
work made them conscious of the importance of health and sanitation. 



FINAL REPORT, FISCAL YEARS 1936-1943 



63 



Construction of Recreational Facilities — Roosevelt High School, Emporia, 
Kans. 

A construction project on the grounds of the elementary school was 
carried out in Emporia. Kans. Inaugurated for the purpose of pre- 
paring a playground, this project included the demolition of one house 
and the moving of another. A street was closed, and the surface of 
the ground was graded and new walks constructed. Playground 
equipment and apparatus was built, and a residence for a campus 
recreational hall was remodeled. 

This project employed 25 boys who were chosen insofar as possible 
because of their interest in industrial arts courses. The work was 
under the supervision of the assistant to the superintendent of build- 
ings and grounds. Combining the use of both hand and power tools 
with general shop work, the playground project offered valuable 
experience to the pupils, as well as a distinct contribution to the school. 

Eye Clinic, Sight Saving — Polytechnic High School, San Francisco, Calif. 

Five girls and three boys were assigned to the health and hospital 
work project which was divided into two parts. The first part was 
the eye clinic where pupils were tested for eye fixedness, scotoma, etc. 
If needed, a corrective course was recommended. Regular retests 
were given. Diagrams were made to show the individual's defects, 
and charts were made to show the pupil's progress. The second part 
of the project rendered immediate service for pathologic cases. 
Posters, bulletins, and texts were prepared for special classes for 
pupils who had defective eyes, or had been assigned to sight-saving 
classes. The pupils assigned to these projects helped to make 
diagrams and charts. They also helped to prepare statistics on the 
research work that had been done, Four of the girls on this project 
planned to become nurses. The fifth girl, who did statistical work, 
was majoring in mathematics. 

Auto-Mechanics Experience — Lincoln High School (Negro), Dallas, Tex. 

Typical of a student work project carried on in many schools, was 
the assignment of NYA boys to the auto-mechanics shop in Lincoln 
School for Negroes at Dallas, Tex., where, under the supervision of 
the auto-mechanics shop teacher, the boys were kept busy in the 
general repair and maintenance of the school-owned automobiles. 
They overhauled motors, recharged batteries, adjusted headlights, 
vulcanized tubes, did necessary electrical work, and washed and 
greased the cars. 

Student Work Councils 

In order to strengthen the student work program, particularly the 
work to which students were assigned, a National Division of Student 



\ 



64 



NATIONAL YOUTH ADMINISTRATION 



Work was established by the Administrator in July 1940. The title 
of "Student Aid" was changed to "Student Work-' to give emphasis 
to the work content of the program. An important development fol- 
lowed in the establishment of State School Work Councils composed 
of secondary school administrators and superintendents. 18 A National 
School Work Council was appointed on January 16, 1942. 19 The 
National and State School Work Councils rendered advisory serv- 
ices to the National Youth Administration on the improvement, ap- 
praisal, and further development of the school work program. State 
youth administrators were directed to establish State College Work 
Councils for the academic year 1941-42. 20 to advise on the college and 
graduate work program. A National College Work Council was also 
appointed. 21 

From the outset, councils were faced with the enormous problem of 
translating the objectives of the student work program into the oper- 
ating practices of some 28,000 separate high schools and 1,700 colleges 
and universities participating in the program. Their task was fun- 
damentally that of evolving a work experience philosophy in educa- 
tion in order that the potential advantages offered youth through the 
facilities of the NYA might be realized to their fullest extent, 

State School Work Councils 

At the secondary school level the State School Work Councils 
devoted their efforts to — 

1. Stimulating a more effective realization on the part of educators 
of the educational and guidance values inherent in actual work 
experience ; 

2. Encouraging school administrators and teachers to utilize work 
experience as an effective supplement to academic training; 

3. Assisting both school officials and NYA personnel in developing 
administrative techniques to improve the integrity of the work pro- 
gram in the respective schools. 

National School Work Council 

The National School Work Council served to coordinate the work 
of the various State councils. It functioned both in an advisory 
capacity to the national office of the NYA and in a leadership capacity 
to the 48 State councils. For example, the following statement on 
standards for NYA school work projects was transmitted for discus- 
sion to the chairman of each State School Work Council in October 
1941 : 

1. The work should be within the range of the student's interests 
and abilities, should constitute a challenge to him, and contribute to ' 

18 Letter No. Y-159, Supplement No. 2, August 20, 1940. 

19 See appendix A for list of members of National School Work Council. 

20 Letter No. Y-207, Supplement No. 1, July 8, 1941. 

21 See appendix A for membership of National College Work Council. 



FINAL REPORT, FISCAL YEARS 1936-1943 65 

his personal and social growth. The work should be such as to demand 
good craftsmanship, and call forth the best efforts of the worker. As 
a result of his work experience on the NYA job, the student should 
be more employable upon leaving school. 

2. The project should be such that the student realizes the value 
of the work he is doing. The student must feel that he is performing 
a real job; "made work" must be avoided. Meeting this problem is 
an important challenge to the school. 

3. The project should provide work that is commensurate with the 
income received for that work. The giving of an honest dollar's 
worth of work for a dollar received is one of the chief bases of the 
integrity of the student work program. 

4. The project should be such as to encourage the student to make 
the employer's interests his own. Projects which tend to make the 
workers exert initiative should be sought. The attitude of the super- 
visor has much to do with the fulfillment of this criterion. 

5. Work on the NYA job should not exclude student participation 
in desirable school activities. Every school should do whatever is 
possible to avoid group distinctions. Students on NYA should be 
encouraged to be active members of the school community in all its 
aspects. 

6. The NYA job should give specific vocational training. If a 
given project meets all of the other standards and, in addition, pro- 
vides training for a specific vocation, such a job may be considered 
most desirable. Work assignments in community agencies other than 
the school will help solve this problem. 

7. Work should be done in the community as well as in and around 
the school. Many jobs which need to be done in each locality are to 
be found in public agencies other than the school. Such assignments 
of student workers tend to bring about a closer relationship and 
understanding between the school and the community. 

State, Regional, and National College Work Councils 

At the college level separate State councils were not only estab- 
lished, but the chairman of each such council represented the colleges 
of his State on a regional council. The chairman of each regional 
council in turn represented the region at the national level as a member 
of the National College Work Council. 

The National Council gave direction to the work of the 11 regional 
councils. It encouraged colleges to evaluate critically their pro- 
grams, made proposals for improving community relationships, and 
developed methods and techniques for enhancing work experience 
values for NYA youth on college work projects throughout the 
Nation. 



66 NATIONAL YOUTH ADMINISTRATION 

Significant improvement both in the quality of student work and 
the type and amount of supervision afforded by the colleges and 
high schools resulted from these administrative moves. Principally 
as a result of council activities, schools and colleges began to evaluate 
the work projects to which students were assigned, and improvements 
were reported by the NYA students and institutional authorities. 

Characteristics of NYA Students 

In order to obtain information on the personal characteristics and 
economic and family background of youth employed on the student 
work program, surveys were made from time to time of the NYA * 
students. A comprehensive and exhaustive survey of 613,350 NYA 
students was made during the academic year 1939-40. 22 This survey 
is considered representative of NYA students and best demonstrates 
for the depression period the personal characteristics and economic 
status of the youth employed on the NYA student work program. A 
survey of family incomes of NYA students was made in December 
1942, which is presented to show the increase in the median incomes 
of NYA students during a year when fuller employment had taken 
place and income levels generally had risen. 

Family Incomes of NYA Students, 1939-40 

The need of NYA students for financial assistance in order to 
continue their education is best evidenced by the fact that the median 
annual income of the families of 613,350 school, college, and graduate 
students employed on the student work program during 1939-40 was 
$645. The median annual income of the families of 162,765 NYA 
college and graduate students was $1,124; and the family income of 
the 450,585 NYA school students was $526. Over one-fifth of the 
families of all NYA students (20.9 percent) earned less than $300 
a year; 38.3 percent had incomes under $500; over two-thirds (67.4 
percent) had incomes under $900; and 85 percent had annual incomes 
under $1,250. 

The median annual income of families of NYA secondary school 
students was very low. Over one-fourth of these families (26.2 per- 
cent) had incomes of less than $300 a year; almost one-half (47.6 
percent) had incomes under $500 a year; about two-thirds (66.5 
percent) earned less than $700 a year; and 85.7 percent had annual 
incomes of less than $1,000. 

22 The data for the 1939-40 survey of NYA student employment were taken from the 
youths' application forms (NYA Student Work Form 303 and 304) for NYA student em- 
ployment, and represented the statements of the youth with regard to their families' in- 
comes. The statements on the student application forms were certified as accurate state- 
ments by their parents or guardian and the institutional official appointed as the NYA 
representative in each institution. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



67 



Measured by the incomes of their families, the need of NYA college 
youth was less strikingly apparent than the need of NYA youth in 
secondary schools. Nevertheless, the median annual income of their 
families, $1,124, amounted to less than $22 a week, a sum which 
allowed little toward the expenses of the youths' college education. 
Between one -fourth and one-fifth of the youth on the college and 
graduate work program (23.3 percent) were in families earning 
less than $700 a year; about two-fifths (39.8 percent) had families 
with incomes of less than $1,000 a year; and about two-thirds (66.8 
percent) had families with annual incomes of less than $1,500. 

The 1939-^L0 survey included 64,083 Negro youth employed on the 
student work program. The median annual family income of Negro 
youth was much less than white youth since the median annual income 
was only $332 as contrasted with $681 for the white NYA students. 
Nearly 46 percent of the families of NYA Negro students had in- 
comes under $300 a year; over two-thirds (69.0 percent) had incomes 
of less than $500 a year; and over four-fifths (82.1 percent) earned 
less than $700 a year. 

The greatest need appeared among NYA Negro students in the 
secondary schools; the median annual income of families was only 
$300. While the annual income of the families of NYA Negro col- 
lege and graduate students was $554, it was still so low that the NYA 
earnings undoubtedly represented the entire cash income of this 
group. 

Table 18. — Median annual income of NYA students' families, by program and race, 
academic years 1939-40 and 1942-43 



Program and race 



Student work program 

White 

Other than white 1 

School work program 

White 

Other than white 

College and graduate work program. 

White 

Other than white 



Median annual income of 
NYA students' families 



1942-43 



$645 


$993 


681 


1,070 


332 


566 


526 


730 


560 


783 


300 


501 


1,124 
1, 150 


1,569 


1,628 


554 


872 



i The 1939-40 survey included "Negro" as a separate classification; the 1942-43 survey obtained informa- 
tion on the basis of "other than white." 



Family Incomes of NYA Students, 1942-43 23 

By the academic year 1942-43, the relative need of NYA students 
for financial assistance based on median family incomes had changed 
from that shown in the 1939-40 survey. 



23 Data based on a field survey of the NYA student applications (NYA Forms 303 and 
J04) made in December 1942. 

566597—44 & 



68 



NATIONAL YOUTH ADMINISTRATION 



A total of 98,727 NYA students was included in the 1942-43 survey, 
of which 59,369 were NYA school students and 39,358 were college 
and graduate students. The median annual family income of all 
NYA students was $993, an increase of 54 percent over the median 
income for 1939-40. White NYA students came from families with 
a median annual income of $1,070, while the families of other-than- 
white students 24 had median incomes of $556, an increase in the 
median incomes of $389 and $244, respectively, over 1939-40. 

The median family incomes were $730 for NYA school students 
(white and other-than-white) , and $1,569 for college and graduate 
students, as contrasted with $526 and $1,124, respectively, in 1939-40. 
The median annual income for other-than -white had also risen 
sharply. The median income of families of other-than-white stu- 
dents was $501 under the NYA school work program, and $872 under 
the college and graduate work program, an increase of 67 percent 
and 57 percent, respectively, over 1939-40. 

The increases indicated in the family incomes of NYA students 
in 1942-43 were offset to a considerable extent by two factors, namely, 
the rise in the cost of living and the acceleration of the college pro- 
grams to a 12-month basis which prevented many students from 
obtaining summer employment as extensively as in previous years. 

Local Surveys of Need of NYA Students, 1941-42 

Two surveys conducted locally (New York City and Colorado) 
in 1941-42 demonstrate the financial need of NYA students. 

New York City School Work Council Survey 

The School Work Council of New York City found in a study of 
the applications of 14,181 youth employed on the NYA school work 
program during the academic year 1941-42 that 37 percent, or 5,288, 
of the youths' families were solely dependent upon mothers' aid, 
pensions, or direct public assistance for support. The study revealed 
that many of the low family incomes were the result of broken homes 
caused by accidents, illness, death of the male wage earner, divorce, 
or abandonment, and that irrespective of the up-swing of employment 
opportunities, the welfare of these families remained largely 
unaffected. 25 

Colorado School Work Council Study 

During the same year (1941-42) the Bureau of Educational Ke- 
search of the University of Colorado in response to an invitation by 
the Colorado School Work Council made a study of 890 NYA students 

24 There was a total of 13,930 other-than-white NYA students included in the 1942-43 
survey of family incomes, of which 10,829 were NYA school students and 3,101 NYA col- 
lege and graduate students. 

,23 Survey made by the NYA New York City High School Work Council from Form NYA- 
303, December 1941. 



FINAL REPORT, FISCAL YEARS 1936-1943 



69 



in comparison with 895 non-NYA students in 99 high schools of that 
State to determine their occupational, professional, and economic 
backgrounds. 

Their research found a wide disparity existed between the family 
incomes of those families whose children were participating in the 
NYA school work program and those families with no children 
participating. 

The average annual income of the 895 non-NYA students was 
found to be $1,500 for a family of 3 as compared with an annual 
income of $625 to meet the needs of a family of 6 where youth were 
employed by the NYA. In other words, the average annual per 
capita income of non-NYA families was found to be nearly 5 times 
as great as that of the families of youth on the high school program. 

The Colorado survey also revealed that of the fathers of NYA stu- 
dents studied, 5.9 percent was unemployed; 13.4 percent was either 
deceased or separated from the family; and 3.9 percent was retired 
or pensioned. 

Of the fathers of the non-NYA students, only 7.4 percent was de- 
ceased or separated from their families, and less than 2 percent was 
unemployed. 26 

Local conditions disclosed in both the Colorado and New York 
City surveys were borne out on the national level by research of 
the National Resources Planning Board, which reported that "ap- 
proximately two-fifths of the households in receipt of public aid in 
June 1940, or some 5,380,000 separate households, consisted of fami- 
lies in which there was no employable member. They comprised 
dependent children, handicapped or permanently disabled persons 
and old people who are likely to be in need of some form of public 
aid regardless of the extent to which economic activity improves." 27 

Size of Families of NYA Students, 1939-40 

The 1939-40 data revealed that the low family incomes of NYA 
students was accentuated by the size of the families dependent upon 
these incomes. Youth on the student work program were members 
of families averaging about five persons. These families were larger 
than those in the general population of the United States, which aver- 
aged about four persons in 1930. 

More than 80 percent of the NYA students was from families num- 
bering at least four persons; 42 percent was from families with at 
least six persons ; and 17 percent was from families of eight or more 
persons. 

Of the NYA students in the secondary schools, almost 85 percent 
was from families of four or more persons; almost half (48.4 percent) 

28 Robert A. Davis and Hazel Taylor, "Efficiency of the High School NYA Program in 
Colorado," The School Review. (University of Chicago: May 1943), pp. 283-284. 
27 National Resources Planning Board, op. ext., chap. XVI, p. 445. 



70 



NATIONAL YOUTH ADMINISTRATION 



was from families of six or more persons; and almost one-third (32.9 
percent) was from families numbering at least seven persons. 

Table 19. — Percent distribution of NYA students by size of family and program 



Size of family 



Total 

1 person 

2 persons 

3 persons 

4 persons... 

5 persons 

6 persons 

7 persons 

8 persons 

9 persons. 

10 persons or more 



Percent of NYA students' families 



Student work 
program 



100.0 



.7 
4.6 
13.6 
19.7 
19.1 
14.5 
10.5 
6.9 
4.5 
5.9 



School work 
program 



100.0 



3.5 
11.5 
17.4 
18.9 
15.5 
12. 1 
8.0 
5.1 
7.7 



College and 
graduate work 
program 



100.0 



.7 
4.5 
18.3 
25.9 
20.7 
13.2 
7.1 
4.5 
2.5 
2.6 



The families of college and graduate NYA students, although some- 
what smaller than those of NYA school students, were still larger 
than families in the general population. Over three-fourths of them 
(76.5 percent) included at least four persons, and 30 percent had at 
least six persons. 

Negro youth on the student work program came from families with 
an average size of about six persons, as compared with an average of 
about five persons for the families of white NYA students. Over 
83 percent of the Negro youths' families numbered at least four 
persons; more than half of them (52.7 percent) included at least six 
persons; and almost 28 percent of them consisted of eight or more 
persons. 

Table 20. — Percent distribution of NYA students, by size of family and race 



Size of family 


Percent of NYA 
students' families 


Size of family 


Percent of NYA 
students' families 


White 


Negro 


White 


Negro 


Total....' 


100.0 


100.0 


5 persons. 


19.8 
15.0 
10.8 
7.0 
4.2 
5.7 


15.5 
13.6 
11.4 
8.5 
6.7 
12.5 


1 person . . 


6 persons . 


.3 
3.7 
13.5 
20.0 


.5 
4.3 
11.6 
15.4 


7 persons. .......... 


2 persons . . 


8 persons 


3 persons. 


9 persons ... 


4 persons 


10 persons or more 







One out of every 8 Negro NYA students was from a family which 
numbered 10 or more persons; among white NYA students, about 1 
out of every 18 was from a family of this size. 

Number of Family in School, 1939-40 

While youth on the student work program were from families with 
an average size of about five persons, between two and three of these 
persons, on the average, were attending school (including the youth 
on the program). 



FINAL REPORT, FISCAL YEARS 1936-194 3 



71 



As would be expected, families of high school youth (larger than 
families of college and graduate youth) had proportionately more 
children in school attendance. Over three-fourths of the families of 
NYA high school students had more than one child in school as com- 
pared with less than two-thirds of the college youths' families which 
fell into this classification. 

Almost one-third (31.4 percent) of the school youths' families had 
at least four children in school attendance; among the college and 
graduate youths' families, this proportion was about one-sixth (16.5 
percent). 

The families of Negro NYA students, with more members than the 
families of white student participants, had proportionately more 
children in school. Of the Negro families, over 76 percent had more 
than one child in school, and well over one-third (35.7 percent) had 
four or more children in school attendance. About one Negro family 
out of every eight had at least six children in school. 

Among the families of the white NYA students, nearly three-fourths 
had more than 1 child in school; over one-fourth (26.6 percent) had 4 
or more children attending classes ; and about one family in 18 had 6 or 
more children in school attendance. 

Employment Status of Families of NYA Students, 1939-40 

Over one-fifth of all youth on the student work program were in 
families which had no employed members. Most of the families of 
NYA students (62.3 percent) had one employed person. About one- 
eighth ( 12.9 percent) had two persons working, and about one-thirtieth 
(3.2 percent) had three or more employed members. 

Although the families of NYA school students were larger than 
those of NYA college and graduate students, the school youths' fam- 
ilies had fewer employed members, in proportion. Over one-fourth 
(25.6 percent) of the families of youth on the school work program 
had no persons employed, as compared with one-tenth ( 10.0 percent) 
of the families of college and graduate students which had no members 
working. 

Among the families of high school students, 60 percent had one 
person working, and almost 12 percent had two persons employed. In 
the families of college and graduate youth, these proportions were 69 
percent for one person employed and about 17 percent for two persons 
employed. 

Negro students had proportionately more members of their families 
employed than white students. About the same proportions of fam- 
ilies in each race group had no employed members. Among the Negro 
families, however, 21 percent had two or more employed members; 
only about 16 percent of the white families had more than one person 
working. 



72 



NATIONAL YOUTH ADMINISTRATION 



Unemployment accounted for 23 percent of the youths' parents; 
nearly 8 percent of the NYA students reported their parents as 
deceased, retired, or disabled; and almost 9 percent of the parents was 
employed on WPA projects. Of parents in gainful occupations, by 
far the largest number (21.9 percent of the total) was engaged in 
agriculture. 

Only 3 percent of the parents was professional or semiprofessional 
persons, and only about 4 percent was classified as proprietors, man- 
agers, or officials. 

Parents of secondary school youth were totally unemployed or were 
working for the WPA in much greater proportions than the parents 
of college students; conversely, the former occupied fewer positions, 
in proportion in the professions, in business, and in "white collar" 
occupations generally. 

For every nine high school students whose parents were WPA 
workers, two college youth had parents so employed. In proportion, 
unemployment affected the parent of every three high school youth 
for every college student's parent who was jobless. 

At the same time the college youth had proportionately five times as 
many parents who were proprietors, managers, and officials as high- 
school youth, between four and five times as many salesmen, clerical, 
and kindred workers, and almost seven times as many professional 
and semi-professional parents. 

Negro youths' parents were concentrated among the unemployed 
(27.5 percent), agricultural workers (26.2 percent), and domestic and 
service workers (18.5 percent). 

In proportion, fewer Negro than white parents were employed on 
WPA projects, and fewer Negro youth had parents who were not in 
the labor market. 



Table 21. — Percent distribution of NYA students' parents, by employment status 

or occupation 





Percent 


of NYA students' parents 


Employment status or occupation 


Student 


School 


College and 




work 


work 


graduate work 




program 


program 


program 


Total 


100.0 


100.0 


100.0 


Professional, semiprofessional.. . . . . . . . 


3.2 


1.3 


8.7 


Proprietors, managers, officials . _. 


3.9 


1.8 


10.1 


Salesmen, clerical and kindred 


4.9 


2.6 


11.7 


Craftsmen . 


6.3 


4.7 


10.8 


Operatives.-. . ... . . • 


7.3 


7.4 


7.0 


Agricultural 1 . .. ...... .... . . 


21.9 


22.0 


21.8 


Domestic and service ... 


6.7 


6.6 


6.9 


Nonagricultural laborers . . .. .. 


6.0 
8.8 


6.9 


3.3 


Employed on WPA . .... 


11.0 


2.4 


Unemployed . . . 


23.3 


28.1 


9.3 


Not in labor market 2 


7.7 


7.6 


8.0 



1 Because youth tend to report their agriculturally employed parents simply as "farmers," no distinction 
is possible between the various levels of agricultural employment, such as tenant, laborer, owner, share- 
cropper, etc. 

2 Includes cases of youth whose parents are deceased. 



FINAL REPORT, FISCAL TEARS 193 6-194 3 73 

Very small proportions of Negro parents were proprietors or office 
or sales workers, and they were under-represented in the crafts and 
among the operatives. 



Table 22. — Percent distribution of NY A students' parents, by employment status 
or occupation and by race 





Percent of NYA 




Percent of NYA 




students' parents 




students' parents 


Employment status or occupation 






Employment status or occupation 








White 


Negro 


White 


Negro 


Total 


100.0 


100.0 


Agricultural .. . 


21.6 


26.2 






Domestic and service 


5.6 


18.5 


Professional, semiprofessional 

Proprietors, managers, officials 


3.3 
4.3 


2.8 
.4 


N onagri cultural laborers 

Employed on WPA. . 


5.7 
9.0 


8.6 
6.5 


Salesmen, clerical and kindred 


5.3 


.6 


Unemployed. . . 


22.7 


27.5 


Craftsmen.. . . .. 


6.7 


2.2 


Not in labor market 


8.1 


4.3 


Operatives.. .. 


7.7 


2.4 





To summarize : Parents of NYA students to a considerable extent 
were unemployed or engaged in agriculture; only small proportions 
were professional or businessmen and office or sales workers; and 
large proportions were WPA workers, laborers, craftsmen, operatives, 
and domestic and service workers. 

These proportions were accentuated in the case of parents of youth 
on the school work program, and greatly accentuated in the case of 
Negro students-* parents. 

Age Distribution of NYA 
Students, 1939^0 

A survey of those assigned to NYA jobs in 1939-40, the peak year 
of employment, showed three out of every five students were less than 
18 years of age. 

On the school work program, youth under 18 constituted four-fifths 
of the total; almost all of the NYA school youth (98.2 percent) were 
under 20. Of NYA students in the colleges, about one-ninth were 
under 18 ; considerably more than half (56 percent) were under 20; and 
only about one-fifteenth were as much as 23 years old. 

The age distribution of youth employed on the student work program 
during 1939-40 is shown in the following table. 



Table 23. — Age distribution of youth on the student work program, 1939-40 



Age 


Student work 
program 


School work 
program 


College and 
graduate work 
program 


All youth 16-24 


1C0.0 


100.0 


100.0 


16 years 


34.6 
26.9 
16.1 
9.6 
5.2 
3.8 
2.0 
1.3 
.5 


46.3 
32.9 
14.3 
4.7 
1.3 
.5 


1.4 
9.8 
21.4 
23.4 
16.4 
13.1 
7.6 
4.9 
2.0 


17 years .. 


18 years 


19 years... . 


20 years 


21 years. . 


22 years 


23 years . 




24 years. . 




,. 





74 



NATIONAL YOUTH ADMINISTRATION 



Grade in School or College, 1939-40 

Over two-thirds of the youth employed on the school work pro- 
gram were in the eleventh and twelfth grades (the junior and sen- 
ior years of high school). Of students on the college and gradu- 
ate work program, almost two-thirds were in the freshman and 
sophomore years. 

Comparison with the grade distribution of NYA students during 
past years shows that the emphasis has always been on the last two 
years of high school and the first two years of college. 

Table 24. — Grade distribution of youth on the student work program, 1939-40 



Grades 


NYA students 


Number 


Percent 


All youth school work 
program ... . 


450, 585 


100.0 


Under eighth grade 

Eighth grade.. . 

Ninth grade.. . . 


5, 819 
14, 090 
41, 389 
79, 955 
136, 586 
161, 757 
3, 726 
7, 263 


1.3 
3.2 
9.3 
18.0 
30.8 
36.5 
.9 


Tenth grade 


Eleventh grade. ... ... 

Twelfth grade 


Postgraduate. .. ... 

Grade unknown. ... 









Grades 



All youth college and 
graduate work pro- 
gram 

Freshmen 

Sophomore 

Junior 

Senior 

Graduate 1 

Grade unknown 



NYA students 



Number Percent 



162, 765 



56, 330 
45, 803 
30, 080 
24, 930 
4, 406 
1, 216 



100.0 



34.9 
28.4 
18.6 
15.4 
2.7 



This concentration was the result in part of the age limits estab- 
lished by the National Youth Administration. At 16 years, the 
minimum age at which youth became eligible for student employ- 
ment, students had normally reached the third year of high school. 

On the school work program, girls were found in the upper grades 
of high school in greater proportion than boys. Forty-one percent 
of all the school work program girls was in the twelfth grade; only 
32 percent of the boys was found in this grade. 

Negroes on the school program were present in the lower grades in 
greater proportion than whites. Over 52 percent of the Negro youth 



Table 25.- 



■Grade distribution of youth on the student work program, by sex and 
race, 1939-40 



Grade 



Total — School work program. 



Under eighth grade. 

Eighth grade 

Ninth grade 

Tenth grade 

Eleventh grade 

Twelfth grade 

Postgraduate 



Total— College and graduate work program. 



Freshman.. 
Sophomore. 

Junior 

Senior 

Graduate. . 



Percent of NYA students 



Boys 


Girls 


White 


Negro 










100.0 


100.0 


100.0 


100.0 


1.7 


.9 


.8 


5.3 


4.2 


2.2 


2.0 


11.3 


11.8 


7.1 


8.4 


16.1 


20.3 


15.9 


17.8 


19.7 


29.8 


31.8 


31.9 


23.1 


31.6 


41.1 


38.2 


24.2 


.6 


1.0 


.9 


.3 


100.0 


100.0 


100.0 


100.0 


34.2 


35.9 


34.8 


36.1 


27.8 


29.2 


28.4 


26.9 


19.2 


17.8 


18.7 


18.2 


15.6 


15.2 


15.5 


14.5 


3.2 


1.9 


2.6 


4.3 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



75 



on the school work program was below the eleventh grade, as com- 
pared with 29 percent of the white youth. 

Scholarship of NY A College and Graduate Students 

Participating institutions and the National Youth Administration 
made extensive studies of the scholastic attainment of NYA students. 
These showed conclusively that (1) financial need of students had 
little bearing on their intelligence or ability, and (2) students em- 
ployed on the college and graduate work program did work con- 
siderably above that of the aA r erage done by college groups in general. 

A Nation-wide survey was made in February 1940 by the national 
NYA office of the scholastic standing of 64,805 NYA college and 
graduate student employees as compared with other students during 
the academic year 1938-39. 

The study showed that (1) students employed by NYA received 
as a group higher grades than the average of the general student 
body in 81 percent of the institutions; (2) nearly two-thirds of the 
NYA students had scholastic averages that placed them in the upper 
half of the student body; (3) in each of the States and Territories a 
majority of the NYA college and graduate students had higher scho- 
lastic averages than the general student body. 

Data contained in the following table were based upon reports 
received from 696 college and graduate institutions in all 48 States, 
the District of Columbia, and the Territories. These schools repre- 
sented 39 percent of the 1,790 institutions participating in the program 



Table 26. — Proportion of institutions in which NYA students as a group made 
higher or lower scholastic averages than the general student body, 1938-39 



Type of classification of institution 


Percent of total number of institu- 
tions 


Higher 


Same 


Lower 


All institutions 


80.6 


4.2 


15.2 


College or university 


84.9 
74.5 
75.5 
60.0 
81.6 


2.4 
9.1 
5.0 


12.7 
16.4 
19.5 
24.0 


Professional or technical. _ . . __ 


Junior college... . ... 


Normal school 


Teachers college . 


3.4 15.0 


Public... 


83.0 


2.2 


14.8 


College or university .. ... .. 


89.0 
75.0 
82.8 
60.0 
84.2 


.9 
5.0 


10.1 
20.0 
17.2 
24.0 
14.5 


Professional or technical. . 


Junior college 


Normal school 


16.0 
1.3 


Teachers college ... 


Private .. 


77.5 


6.5 


16.0 


College or university.. _ 


80.8 
71.4 


5.8 
10.7 


13.4 
17.9 


Professional or technical . 


Junior college 


71.9 
80.0 


6.2 


21.9 
20.0 


Teachers college 


Denominational 




79.6 


5.2 


15.2 


College or university 


84.7 
85.7 
62.5 
50.0 


1.3 
14.3 
15.0 
33.3 


14.0 


Professional or technical . 


Junior college 


22.5 
16.7 


Teachers college 



76 



NATIONAL YOUTH ADMINISTRATION 



during 1938-39, and included 64,805 NYA college and graduate stu- 
dents, or 55 percent of the total number of youth employed. 

The schools were selected to include a representative cross-section 
of colleges and universities, teachers colleges, normal schools, junior 
colleges, and Negro colleges operated under public, private, and 
denominational control. The scholastic averages reported were in 
most instances those for the last quarter or semester of the academic 
year 1938-39. 

Of the 696 college and graduate institutions submitting reports, 
561 or about 81 percent of them reported that NYA students as a 
group maintained a higher scholastic average than the student body 
as a whole. In only 15 percent of the institutions did the NYA 
group have a lower average and in 4 percent of the schools the NYA 
students as a group had the same scholastic average as the whole 
student body. 

The 8-year record of achievement made by the majority of these 
students of limited financial means who were assisted by the National 
Youth Administration to attain their education demonstrated that 
there was relatively little relationship between financial inability to 
attend college and the students' ability, and that the return on the 
Government investment in these students was high. 

Evidence of the scholastic attainment of NYA students was further 
shown in the following limited selection of surveys and reports made 
by individual colleges and universities : 

University of Oregon, Eugene, Or eg. 

A report of the Committee on Federal Employment for students 
at the University of Oregon for the academic year 1937-38 revealed 
that in the fall term 11 percent of the students on NYA won places 
on the honor roll as compared with less than 4 percent of the total 
student body. In the winter term, almost 18^ percent of students re- 
ceiving NYA aid were on the honor roll, while about 5 percent of the 
student body were listed. During both terms, about one-third of all 
students listed on the honor roll were NYA recipients, although NYA 
recipients represented only about 8 percent of the total enrollment. 

Carnegie Institute of Technology, Pittsburgh, Pa. 

The following figures submitted by the Registrar's office at Car- 
negie Institute of Technology indicate the scholarship status of 
students participating in the NYA program at that institution in 
the academic year 1937-38 : 





All students 


NYA 
students 


Non-NYA 
students 


Average grade... ... . .. . 


2. 15 


2. 30 
2. 28 
2. 34 


2.12 
2.01 
2.34 


Male . . . 


Female. 









FINAL REPORT, FISCAL YEARS 1936-194 3 77 

The officials at this institution concluded with the statement that 
"the aid rendered has relieved the student's financial tension, 
strengthened his character, improved his industry ; and the result is 
higher grades." 

Indiana University, Bloomington, Ind. 

For the academic year 1939-40, Indiana University reported that 
101 NYA students were in the highest 10 percent of their class, 65 
received undergraduate scholarships, 5 received cash awards, and 63 
honorable mention. One NYA student was awarded a graduate 
fellowship ; 38 were elected to honorary societies. 

University of Florida, Gainesville, Fla. 28 

Officials at the University of Florida conducted a study covering 
8 years of the operation of the NYA program with the conclusion 
that "There seems to be a definite correlation between the fact that 
the student is earning part of his college expenses by working under 
the direct supervision of the university staff member and superiority 
in academic work by the NYA student. This is evidenced by the 
following : 

"Each year the grades of the NYA students have been markedly 
above the grades of the student body averages. The scholastic stand- 
ing of the NYA men who worked at least 50 hours each month will 
average, over the 8-year period, about 2.70 to 2.80, whereas the 
student body scholastic average for the same period ranges between 
2.00 and 2.30. In other words, the student body scholastic average 
is slightly better than C, with C carrying the numerical value of 2.00. 
The NYA average is close to Z?, with the B average carrying the 
value of 3.00.*' 

University of North Dakota, University, N. Dak. 

Among 43 students in the graduating class of the University of 
North Dakota listed as winning individual honors in 1938-39, 20 
were from the NYA student lists. Seven out of ten scholarships and 
fellowships awarded at this institution went to NYA students. 

Summary Evaluation of the NYA Student Work Program 

The National Youth Administration through its student work pro- 
gram contributed to the equalization of educational opportunities 
of youth from low-income families. Too many frustrated and im- 
poverished youth, unable to continue their education, presented an 
undesirable and dangerous possibility to democracy. 

The extent to which the National Youth Administration alleviated 



23 Robert C. Beaty, A Report of XYA at the University of Florida from 193 if through 19^2. 
(Mimeo.) 



NATIONAL YOUTH ADMINISTRATION 



educational inequities can only be measured objectively through, 
analysis by those not directly associated with its programs. 

Many evaluative studies have been made of the student work pro- 
gram. The most valid appraisals of the merits and weaknesses of 
the program up to this time are those made by the institutions in 
which the program was operated ; by the National Resources Planning 
Board ; by the youth actually employed ; and by NYA advisory school 
and college work councils, who were deeply concerned with the 
objectives and broad educational and social implications of the pro- 
gram. 

A study of the student work program was made in 1942 by the 
National Resources Planning Board, 29 and a summary of the general 
conclusions of this study represents a careful evaluation of the extent 
the objectives were attained : 

1. Funds appropriated to the NYA were inadequate to meet the 
full extent of the need for opportunity to continue schooling, es- 
pecially in those parts of the country where incomes were lowest and 
educational facilities least adequate. 

2. As a means of making access to education more widely available, 
the objectives of the program were very modest, for the program did 
not attempt to provide full maintenance, but aimed merely to sup- 
plement, through wages paid to students, the support which they 
received from their families. 

3. The work performed undoubtedly was of great value to local 
schools and communities, often providing goods and services beyond 
the regular budgets of the schools. But the very fact that the charac- 
ter of the projects was influenced by the needs and interests of sponsor- 
ing institutions limited the extent to which they were adapted to the 
attitudes and occupational futures of the students. 

4. Above all, the pioneer experience of the two youth agencies. NYA 
and CCC, gave support to the idea of incorporating work experience 
more largely into the educational program of American schools. The 
main avenue through which these influences were brought to bear on 
the educational system of the country was the student work program, 
since this was conducted by the educational institutions themselves. 

5. The principle on which funds were allotted as between the States 
prevented the program from giving more assistance to those States 
where the need for aid to continue education was most pronounced. 

Many evaluations were made by educators, and NYA State school 
and college councils. A few of these are given to present the findings 
of State studies as to the value of the student work program. 

State of Colorado Survey 

During the fall of 1941, the Bureau of Educational Research of the 



29 National Resources Planning Board, op. cit., pp. 271-278. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



79 



University of Colorado, in response to an invitation by the NYA 
Colorado State Advisory Council on Student Work, conducted a sur- 
vey to evaluate as objectively as possible the NYA program in the 
high schools of that State. This study of the opinions of representa- 
tive citizens of NYA and non-NYA students and NYA supervisors 
was designed to determine the work NYA pupils were doing, how it 
was supervised, how the NYA was regarded by the other pupils in the 
school, what the people in the community thought of the NYA pro- 
gram in their local school, and whether the work had educational and 
vocational values. 

On the basis of questionnaires returned from 890 non-NYA pupils, 
728 NYA supervisors and 226 citizens, the following conclusions were 
reached : 

1. The NYA and the non-NYA pupils, the supervisors, the school 
officials as well as the citizens were in agreement that without the 
financial aid provided pupils through the NYA many would find it 
difficult, if not impossible to attend high school. 

2. They further agreed that the projects afforded opportunity for 
the development of desirable work habits and skills. 

3. The NYA pupils, supervisors and citizens, and less frequently 
non-NYA pupils, felt that the hours allotted for NYA work were too 
few, and that some students received the aid who were not in need of it. 

4. Teachers, school officials, and citizens favored the continuance 
of the program because it provided aid for those in need, afforded 
desirable work experience, and benefited the school and the com- 
munity. 

5. These groups also felt that the program had enabled deserving 
and capable pupils to participate more fully in the regular program 
of the school and that it had given opportunity for the development 
of desirable work habits and skills. They felt it had not, however, 
reached a stage of purposeful and careful planning by school people, 
and consequently some types of work, so far as the pupil was con- 
cerned, were of dubious value educationally and vocationally. 

State of California Survey 30 

In a California survey made during the 1938-39 school year, princi- 
pals and students in 345 high schools in the State were asked by the 
State NYA administrator to express their views regarding the effects 
of NYA employment on the student's future employability. Of the 
345 principals, 289 (84 percent) felt that participation in NYA work 
had made students more employable. Opinions rendered by these 
289 fall into the following classes : 

30 Ruth MacFarlane, Evaluation of the School-Aid Program, 1938—39, prepared for the 
subcommittee on school aid of the State advisory council. (San Francisco, Calif. : National 
Youth Administration. 1939.) Mimeo. 



/ 



80 



NATIONAL YOUTH ADMINISTRATION 



One hundred fifty-one believed that vocational training received 
on the job had been the primary cause of increase in employability. 

One hundred ten believed the increase to result primarily from 
the development of good work habits on the job. 

Fifteen thought the assignment made possible more effective recom- 
mendations to future employers. 

Thirteen felt increased employability resulted from the NYA's 
assistance in securing more education, and in some instances going 
on to higher education. 

In the same study, nine-tenths of the NYA high school youth ques- 
tioned felt that they had received valuable training on their NYA 
jobs, and that the initiative and responsibility developed on the job 
would help them secure employment after they left school. 

Ohio State University Survey 31 

On the college level a carefully planned study was carried out at 
Ohio State University in 1936-37 where more than 1,300 students 
were employed during the academic year. The following is quoted 
from the report : 

In 3% years of experience we have found at the Ohio State University that 
NYA part-time positions are considerably superior to part-time jobs obtainable 
in the city of Columbus. In the first place, NYA jobs can be much better cor- 
related with the study program of students. Many superior students enter 
colleges and universities, but few of them are able to secure part-time posi- 
tions commensurate with their abilities. Too many of them are employed as 
dish washers, furnace tenders, rakers of leaves, and general handymen. While 
such work experience produces a modicum of value, it cannot be compared with 
the type of work which NYA students are undertaking under the student aid 
program. Outside employers essentially are not interested in the student's 
personal development. They have a job to be done, and they pay the student to 
do that particular job. On the other hand, the NYA projects committee and the 
great majority of project supervisors seek to determine what the student's 
particular abilities are and to develop these by means of the work to which 
he is assigned. 

In the second place the emphasis in the selection of NYA students is put upon 
student need rather than upon student ability. It is possible, therefore, by 
means of the student aid program to give employment to a large number of 
students who have no particular abilities and who, therefore, cannot find em- 
ployment in the city of Columbus. Lacking specific skills these students are 
continuously on the look-out for room and board or unskilled labor jobs. During 
the depression they all but ceased to exist. Thus it has been possible for 
hundreds of these students at the Ohio State University to secure employment 
and to develop skills while at work. These skills often prove educationally and 
vocationally of considerable significance. 

NYA students at Ohio State University, questioned as to the effects 
of their NYA employment, listed several traits which the work had 
developed : 



31 William H. Cowley, A Study of NYA Projects at the Ohio State University. (Wash- 
ington : National Youth Administration, 1937.) Mimeo. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



81 



Eighty-seven percent said that the NYA employment made them 
more accurate and careful in their work. 

Eighty-one percent said that their work had taught them to assume 
responsibility. 

Seventy-eight percent said that they had learned to work coopera- 
tively with others. 

Seventy-seven percent said that they had developed self-confidence 
which should aid them in interviews with prospective employers. 

Sixty-six percent said that they had developed worthwhile skills 
on the NYA job. 

Sixty -three percent said that the NYA job provided more oppor- 
tunity for developing initiative than the classroom. 

Eighty-nine percent of the students questioned concurred in the 
opinion that NYA work was educationally valuable to them. Sixty 
percent expressed the opinion that their NYA work seemed to them as 
valuable as the taking of a university course. 

In addition to the educational values of their NYA work, 131 stu- 
dents reported development of skills having commercial value to 
them; students on 235 projects asserted that through their NYA 
experience they had developed "improved abilities in social relations." 
Many students volunteered the opinion that the disciplinary values 
of their NYA assignments had been of great importance to them. 

University of Missouri Survey 32 

Conclusions of a 1940 study conducted at the University of Missouri 
showed : 

Seventy-seven percent of the NYA workers believed they would be 
more successful in obtaining or holding a position as a result of their 
experience obtained on NYA work. 

Sixty-eight percent felt they had gained valuable training and ex- 
perience along the lines of their intended vocations. 

Eighty-seven percent believed their NYA work had made them 
able to assume responsibilities. 

Eighty-five percent reported their NYA experience had caused them 
to learn how to budget and plan better use of their time. 

Eighty-three percent reported they were more able to work coopera- 
tively with others. 

University of Florida Report 33 

A report from the University of Florida, made for the years 1934 
through 1942 on "the worth and scope of the program" at that insti- 
tution indicates: 

32 An Evaluation of the NYA Student Work Program at the University of Missouri, pre- 
pared by the Student Aid Committee. (Columbia, Mo.; August 22, 1940.) Mimeo., pp. 
79-81. 

33 Robert C. Beaty, op. cit. 



82 



NATIONAL YOUTH ADMINISTRATION 



1. A definite correlation between the fact that the student was earn- 
ing part of his college expenses under the supervision of a university 
staff member and superiority in academic work. 

2. That 90 percent of the men on NYA, or 2,867 students, would 
have been unable to attend or remain at the University of Florida 
without financial assistance. 

3. That the man-hours of work, which otherwise would not have 
been done, were consummated on NYA projects at the University of 
Florida in types of work which enhanced the value of the university 
both to the students and adult constituency it served. 

Return on the Investment 

As to the intangible benefits growing out of this national investment 
of almost $167,000,000 in 2,134,000 American youth, it naturally is 
impossible to present organized, scientific data. The files of the 
National Youth Administration, now deposited in the Archives of 
the United States, are filled with letters from thousands of young 
people, college and school officials, clergy, and the lay public attesting 
to the educational, social, democratic, and human values that have 
accrued to America from this investment. 

Within the funds available to the National Youth Administration, 
it made a contribution toward greater democracy in education. Dur- 
ing the 8-year period of its existence, 2,134,000 different youth were 
given an opportunity to continue their education; 620,000 of these 
youth were enabled to attend college, while 1,514,000 were assisted 
in continuing in secondary schools. 

Through the technique of making payments direct to the students 
in return for work performed, an effort was made to increase the 
employability of needy students through basic work-experience and 
the development of work habits and attitudes, to help them in obtain- 
ing and holding employment and to advance them in their chosen 
fields. 

There was a consistent effort to prevent racial and religious dis- 
crimination, and during the years of operation the number of Negro 
youth on the student work program was maintained in the same 
ratio that Negro youth bore to the general youth population within 
each State. 

The student work program has developed an awareness on the part 
of educators of the value of combining work and educational ex- 
perience. 

The work performed by 2,134,000 youth has been of great value to 
local schools, colleges, and communities. Goods and services have 
been produced which would otherwise have been impossible for many " 
of the smaller institutions to obtain. 



IV- 



Out-of-School Work Program: Eligibility of 
Youth, Project Planning, and Supervision 

The masses of unemployed youth were unmistakably social dyna- 
mite. Several millions of young, inexperienced job seekers could not 
be ignored. In recognition of the imperative necessity to find some 
solution to their problems, the National Youth Administration's 
major program was to provide part-time employment for unemployed 
out-of -school youth. 

The NYA attempted to give as many young people as possible a 
substitute for the practical work experience which in normal times 
they would have gained through work in private employment. 
Through the youth work program, NYA contributed to an equaliza- 
tion of economic opportunities for the Nation's young people, and 
improved not only their living standards and employability, but 
their recreational opportunities and their health as well. Even 
though the wages paid were but a pittance, they helped restore and 
buttress the faith of the youth in themselves and in their country. 

The operation of the NYA out-of -school work program was influ- 
enced by three great national emergencies — each one unparalleled 
historically in scope and significance. These national crises were the 
unemployment emergency of the depression, the defense emergency, 
and the war emergency. 

Until 1937, the work program for youth was not developed with 
the assurance that the work experience would lead to private em- 
ployment opportunities. There were too few of these for immediate 
outlets for qualified young persons. The youth work program was a 
new departure in Federal activities, and was without an established 
pattern of operation. In the early months projects were hurriedly 
organized in order to put idle youth to work as soon as possible. 
After the first months of trial and error, when work projects began 
to give sound work experience, other job opportunities were still not 
occurring. In 1937, a new national need directly concerning youth 
began to emerge. It was foreseen that a sudden upswing in industry, 
such as war might occasion, would find industry gravely handicapped 
by a shortage of trained personnel. During the years of unemploy- 
ment few apprentices had been trained. There was a general inade- 
quacy of youth prepared to perform industrial operations. Antici- 

566597—44 7 83 



84 



NATIONAL YOUTH ADMINISTRATION 



pating the possibility of an industrial demand for trained youth y 
NYA began to expand its types of work activities and make them 
more specialized. Workshops were set up where youth could be 
trained in industrial skills, with the hope of assisting in meeting 
industrial needs for specialized operators, as well as the needs of the 
youth for specialized training through work experience. 

The shadows of war, which were already faintly discernible in 
1937, became sharper and clearer in 1938 and 1939. When Hitler 
entered Austria, the possibility of another great war could not be 
dismissed. The occupation of the Rhineland, the formal renuncia- 
tion of the Versailles pact, the naval building program undertaken 
by Germany, and finally the entry of Germany into Austria — these 
and other developments foreshadowed the war that was in the offing. 

Aware of the developing situation, NYA placed added emphasis 
upon building-construction and shop -production projects. Service, 
recreational assistance, and subprofessional projects were curtailed in 
preference of manual projects. In the spring of 1940, NYA officials 
foresightedly began the purchase of equipment for machine shops r 
foundries, and forges ; woodworking, sheet-metal, radio, aviation, and 
electrical shops. Machinery which other Government establishments 
and industries had junked was located, purchased at junk prices, re- 
built by NYA youth under the supervision of NYA shop men, and put 
into use, By the summer of 1941, there were 2,500 mechanical shops 
in operation by NYA. The NYA defense-training program, specifi- 
cally directed toward the looming war need, was placed in operation 
on July 1, 1941. When Japan struck at Pearl Harbor on December 
7, 1941, NYA immediately began to divest itself of the vestiges of 
the youth relief and rehabilitation program. 

The foregoing review briefly sets forth how the NYA adjusted 
to meet the Nation's needs as these needs related to the youth who 
were its special concern. Since its creation, the NYA had been moti- 
vated by one purpose — to further the sound integration of youth 
into the needs of the community, the State, and the Nation. These 
were the major objectives served by the out-of-school work program: 

1. Youth who would otherwise be unemployed received the intan- 
gible benefits of useful activity and the material benefits of their 
NYA wages ; 

2. Buildings and facilities, goods and services needed by local com- 
munities and not available under their normal budgets were provided 
through the operation of projects ; 

3. The youth received valuable work experience which enhanced 
their employability ; A 

4. In a period of emphasis on national defense and war, hundreds 
of thousands of youth were given the opportunity to prepare them- 



FINAL REPORT, FISCAL YEARS 19 36-1943 



85 



selves, through their NYA jobs, for an active part in the industries 
vital to the national defense and war program. 

Accompanying these major objectives was the continuous emphasis 
placed on health and health habits, guidance in employment oppor- 
tunities, and development of character and habits of cooperation. 

Eligibility Requirements for Youth Employment 

Three basic requirements governed the selection of youth for par- 
ticipation in the out-of-school work program. Youth had to be (1) 
within administratively prescribed age limits; (2) unemployed and 
in need of employment and work experience; (3) citizens of the 
United States. 

Age. — Until August 1, 1940, employment on the out-of-school work 
program was restricted to youth who were between the ages of 18 
and 24, inclusive. While this age range overlapped the lower age 
limits for WPA employment, youth employed on NYA projects were 
secondary wage earners, not the primary wage earners for family 
groups as were WPA workers. From July 1, 1940, to July 1, 1941, 
exemptions were granted in special circumstances for the employment 
of youth aged IT and 16, provided proper safeguards were established. 
On July 1, 1941, the age minimum was lowered by order of the National 
Administrator to 17 years in accordance with the appropriations act. 
Special exemptions for the employment on NYA projects of youth 
16 years of age were continued. 

Prior to the fiscal year beginning July 1, 1941, the minimum and 
maximum ages had been prescribed by the National Administrator. 
For the last 2 years of operation, however, Congress wrote into the 
appropriations acts the age specifications; namely, for fiscal year 
1942 employment was to be provided for needy young persons between 
the ages of 17-24, inclusive, and for fiscal year 1943, the age limits 
were specified as 16-24, inclusive. The lowering of the minimum age 
was brought about by the increased opportunities of employment for 
youth over 18 years of age and needs of the military services, with a 
subsequent change in the number of unemployed youth available for 
employment on NYA work projects in the 18-24-year age group. 

Youths 1 need for employment. — Since the National Youth Admin- 
istration was established as a relief measure, youth were selected who 
were from families certified as eligible for any form of public assist- 
ance, and who were not the primary wage earners of these families. 
The certifying agency was a public relief agency approved by the 
Works Progress Administration. A youth member of a relief family 
was eligible for NYA employment irrespective of the fact that the 
primary wage earner was employed on the WPA. Ninety percent of 
NYA project employment had to be j 7 outh workers from families cer- 



86 



NATIONAL YOUTH ADMINISTRATION 



tified as in need; the other 10 percent was made up of supervisory 
and administrative project staff. Youth members of Resettlement 
Administration homestead families and families which received sub- 
sistence grants from the Resettlement Administration were also eligi- 
ble for employment on NYA projects. During the 4 years (1936-39) 
that the NYA was part of the WPA, the local WPA Division of Em- 
ployment was responsible for the initial assignment, reassignment, 
classification, and reclassification of youth labor to NYA projects. The 
State youth directors and the WPA director of employment cooper- 
ated on internal policy and procedure. All youth workers on NYA 
work projects were required to maintain an active registration with 
the employment offices of the U. S. Employment Service. 

Until September 1, 1938, the WPA Division of Employment con- 
stituted the only certifying agency of youth to the NYA. Because 
the volume of work entailed in handling employment clearance, as- 
signments, and certification of youth to the NYA became a burden 
to overworked local WPA offices, certification of youth was frequently 
neglected by many local WPA offices. To overcome this servicing 
problem, the State youth directors were given the responsibility for 
the certification of youth for NYA employment, in consultation with 
the WPA Division of Employment. The State youth director was 
also given authority to authorize and approve public relief agencies 
other than the WPA to make certification of youth for NYA employ- 
ment, rather than depending on the WPA Division of Employment 
for this service function. The following were the groups of youth 
then designated as eligible for certification, the second of which pro- 
vided a broader base of selection than previously : 

1. A youth member of a family certified as in need at the time of 
application regardless of whether the primary wage earner was 
employed on the WPA program ; 

2. A youth member of a family which was in need at the time of 
application regardless of whether the primary wage earner had been 
certified (conditions creating such eligibility could be one in which 
the family income was insufficient to provide the basic needs of all 
members of the family) ; 

3. A youth member of a family eligible for any form of public as- 
sistance such as a youth member of homestead families and families 
which received assistance from the Farm Security Administration ; 

4. A youth without family connections who was in need at the time of 
application. 

A youth certified as in need who was employed upon a project was 
expected to accept a bona fide offer of private employment, provided 

1. That the work paid as much or more as received from the NYA ; 

2. That the wage for such work was at the prevailing rate ; 



FINAL REPORT, FISCAL YEARS 19 36-1943 



87 



3. That such work was not in conflict with established youth 
relationships ; 

4. That adequate health and sanitary facilities were provided and 
that private work was conducted in accordance with safe working 
conditions. 

A youth who refused a bona fide offer of private employment was not 
retained in NYA employment for the period such private employment 
would have been available. 

Until July 1, 1939, the WPA Division of Employment at the State 
and local levels continued to service the NYA on the paper details of 
certification of youth and initial assignment to NYA project em- 
ployment. The State youth director issued requisitions for NYA 
workers through the WPA Division of Employment. Separation of 
NYA workers from projects, except in those cases where eligibility 
was cancelled, was the responsibility of the State youth director. 

Shortly after July 1, 1939, when the NYA was transferred to the 
Federal Security Agency, a Division of Youth Personnel was estab- 
lished in the national office and at the regional, State, and local levels. 
From this time on, the NYA assumed complete responsibility for 
the approval of the certifying relief agencies, the assignment, classi- 
fication, and reclassification of youth labor, as well as termination of 
employment. The statement of youth need was revised, and the 
group of youth eligible for NYA employment heretofore designated 
as a "youth member of a family certified as in need at the time of ap- 
plication'' was eliminated. The one requirement for establishing 
need for NYA employment was that "youth must be certified as in 
need by a public relief agency approved by the State youth adminis- 
trator." This permitted the selection of youth without the family 
relief status as such being designated in individual cases. A youth in 
need of employment could apply for NYA project work without 
subjecting his family to investigation by a public relief agency. 

A youth was considered needy by NYA if he were a member of a 
family whose income was insufficient to provide the basic requirements 
of all members of the family, including the youth member, regard- 
less of whether the family was receiving public assistance or was 
eligible for any form of public assistance. The State youth adminis- 
trators accepted direct applications from youth, as well as referrals 
of youth by relief or nonrelief agencies. In many instances, the NYA 
conducted its own investigations of the youths' needs. 

In certain States, relief agencies considered the wages of NYA 
youth as supplementary relief for the youth's family. In order 
to obviate deductions from family relief budgets in amounts greater 
than the relief allowance provided in the budget for the youth 
member assigned to a NYA project, the NYA Administrator, on 



88 



NATIONAL YOUTH ADMINISTRATION 



November 22, 1939, ordered State youth administrators to termi- 
nate from NYA project employment a youth member of a relief 
family if the relief agency deducted more than 25 percent of the 
youth's NYA wage from the family's relief budget. The wages 
paid to a NYA worker were intended primarily to help the youth 
improve his personal employ ability rather • than to subsidize the 
State or local relief budget. Where the practice existed of ex- 
cessive deductions from family relief budgets because of NYA em- 
ployment, the NYA administrators were instructed to inform relief 
agencies of its policy of termination if this practice were continued. 
This action of the National Administrator resulted in the majority 
of relief agencies ceasing to deduct earnings of the NYA youth 
worker from the supplementary family relief budget. In several 
counties, relief agencies failed to cooperate with the purpose of the 
order and excluded NYA youth as members of the relief families 
for budgetary purposes, thereby reducing the family relief budget 
in the amount of the youth's normal relief allowance. 

Each certified youth was interviewed by a NYA representative be- 
fore his initial assignment to a project. Selection of youth for a 
particular project or type of work was based on the following 
considerations : 

1. The individual's capacity to benefit from the work experience 
and training of a particular work project; 

2. The occupational qualifications and occupational interests of 
the individual and his ability to perform the work required insofar 
as possible. 

NYA youth personnel supervisors made every effort to assign youth 
to project work which gave them experience in line with their vo- 
cational interests. Rotation of work assignment was encouraged to 
give the youth a try-out experience in the various types of work of- 
fered on the project. The national regulations also required that 
no youth was to be employed or continued in employment if his 
work habits showed that he was incapable of performing satisfac- 
torily the work to which he was assigned. 

A youth could not be employed on any project until he had made 
an affidavit as to his United States citizenship, or if he advocated 
or was a member of an organization that advocated the overthrow 
of the Government of the United States, through force or violence. 

Beginning with the fiscal year ending June 30, 1941, NYA was 
desirous of increasing the numbers of youth awaiting assignment 
to NYA projects in order that project openings might be more rap- 
idly filled from a backlog of certified and eligible youth. NYA 
State administrators were instructed to certify all youth who ap- 
plied for NYA project employment and who were eligible for proj- 



FINAL REPORT, FISCAL YEARS 1936-19 43 89 

€ct employment, regardless of the number of assignments to work 
projects currently possible. To facilitate the carrying out of this 
policy of increasing the backlog of eligible youth, the National Ad- 
ministrator ordered that in every county, a place other than the re- 
lief office was to be open at least one day a week where youth might 
apply for NYA employment. This was in part a result of the sum- 
mary treatment given NYA applicants in local relief offices if requisi- 
tions for workers were not currently on hand. On occasion, relief 
offices discouraged youth from filing applications. 

To establish the basis for determination of need, the State youth 
administrators were given the authority to classify annual family 
income levels from which youth members were eligible for NYA 
employment. Youth who were otherwise eligible and who came 
from families with incomes below the established levels were then 
certified automatically. The income levels were determined in ac- 
cordance with local conditions and were not regarded as the maximum 
in every instance. Where the family income exceeded the level thus 
established, youth could be certified on the basis of extenuating 
circumstances present in individual cases. 

The local youth personnel staff maintained active and current rec- 
ords of availability of youth awaiting assignment. Youth employed 
on NYA projects were considered eligible during the period of their 
project employment unless evidence had been received that a youth's 
status or that of his family had changed sufficiently to warrant can- 
celation of his certification. 

Youth employed on NYA projects were required, as in the past, to 
register with local offices of the U. S. Employment Service. Youth 
in rural areas remote from Employment Service offices were assigned 
to projects without having first registered with the Employment 
Service, but they were required to register as soon after assignment 
as possible. Added emphasis was placed on the importance to 
NYA youth workers, as well as youth awaiting assignment to NYA 
projects, of making themselves available for whatever private job 
opportunities arose in their communities. 

There were no further changes in eligibility requirements until 
July 1, 1942. After that date, to be eligible for employment on a 
war production training project, young persons had to be citizens 
of the United States (or the Commonwealth of the Philippines), 
not less than 16 years of age and not yet 25, and unemployed. 
Each youth employed was required to execute an employment affi- 
davit and an oath of allegiance prior to entrance on duty. Since 
State offices were abolished on July 1, 1942, the regional youth admin- 
istrator or his authorized representative was responsible for the 
assignment, classification, transfer, or termination of youth em- 



90 



NATIONAL YOUTH ADMINISTRATION 



ployees. The facilities of the U. S. Employment Service were 
utilized wherever possible in the selection and referral of youth for 
employment and work training on projects. When the facilities 
and services of the Employment Service did not provide sufficient 
qualified applicants to fill vacancies existing on projects, the regional 
youth administrator, or his authorized representative, was then re- 
sponsible for the registration, selection, and referral of youth to war 
production training projects. The NYA had removed all require- 
ments of family or individual youth financial need, leaving only the 
need for work experience in preparation for employment in war 
industries. Prior to assignment to employment on a war production 
training project, each youth had to agree in writing to accept employ- 
ment in industries related to national defense or war production, if 
and when offered in good faith. 

On November 19, 1942, the National Administrator permitted the 
employment on war production training projects of male youth who 
were on parole from Federal, State, and local correctional institutions 
(public and private) provided that the youth had been paroled 
previous to his assignment to a NYA war production training project 
and that no member of the NYA's administrative or supervisory 
staff served as the parole officer. Prior to this time, paroled youth 
were not eligible for NYA employment. 

On April 28, 1943, the National Administrator authorized the as- 
signment of high school and college seniors to war production train- 
ing projects of the NYA. Up to this time, a student carrying at least 
three-fourths of a regular school or college schedule could not be em- 
ployed on a NYA work project. The requirement previously had 
been that a youth must either have completed his regular schooling 
or have passed the compulsory school attendance age in his home 
State. Selected high school and college seniors could be assigned 
to NYA war production training projects under the following 
conditions : 

1. A responsible official of the local institution must request in 
writing the assignment of students ; 

2. No youth could be currently employed on both the student work 
program and the war production training program. 

In the assignment of students to NYA war production training proj- 
ects, all arrangements had to be consummated jointly by the NYA 
project manager and the local institution's officials and approved by the 
regional youth administrator. Each student had to agree to enter 
a war industry. The work training arrangements could not interfere 
with the regular academic schedule of the students. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



91 



Planning Work Projects and Development 

C Plans for work projects originated in the local communities and were 
based on a consideration of the youth relief needs of the community 
and the type and number of unemployed youth in the localities. Proj- 
ects could be proposed by any individual or public or private agency 
but had to be sponsored by a Federal agency or a State or public body 
or agency thereof. 

The State youth administration and its local offices were the cen- 
ters for stimulating the conception and origination of a large num- 
ber of projects. The State office contacted various public and private 
agencies which might assist in the development of worthwhile projects. 
Local contributions toward the cost of the projects were solicited. 
Proposals for projects were submitted to the State youth administra- 
tor from the local community for approval and allocation of funds 
for its operation. Approval of the Washington office was required 
only when there were large material costs or when the project was of a 
technical nature. Otherwise, the approval of State and/or local NYA 
officials was sufficient. 

During the fiscal years 1936 and 1937, the work program for out- 
of -school unemployed youth was conducted under four broad classi- 
fications of XYA-sponsored Federal projects: 

1. Projects for youth community development and recreational 
leadership ; 

2. Projects for rural youth development — improvement of rural 
school grounds, minor repair of public buildings, conservation work 
at State experimental farms, development of county or community 
centers, sanitation, rural library service, recreational and community 
activities for youth in rural areas ; 

3. Public service projects — assistance in various public services out- 
side the normal budgeted scope of governmental agencies, such as 
traffic checks and control, sanitation, health, and investigation of local 
and State government records ; 

4. Research projects — local research in local history, tax records, 
safety campaigns, biological, etc. j 

By the fiscal year 1938, these general classifications of work projects 
had proved unsatisfactory, and more specific types of work activities 
were specified. The State youth directors were instructed to use 
the following guides in developing and approving work projects: 

1. The number of young people to be employed ; 

2. The experience to be gained by those employed ; 

3. The length of time the project would last ; 

4. The benefit that youth in the community would derive from the 
project when it was completed. 



92 



NATIONAL YOUTH ADMINISTRATION 



No project could be planned or application approved that covered 
work which was to be prosecuted for the improvement of Federal 
property or primarily for the benefit of other Federal agencies. 
"Work projects had to be classified under one of the following types of 
work activities; projects could not include more than one such work 
activity except where certain supplementary activities were essential 
to the proper prosecution of the major activity : 

Construction Work 

Roads, streets, and bridges : 

1. Roadside improvements, trails, footpaths, etc. 

2. Other highway, road, and street projects. 
Public buildings projects: 

1. Construction of new buildings. 

2. Remodeling and repair of public buildings and facilities. 

3. Improvement of grounds around buildings. 
Recreational facilities (exclusive of buildings). 
Conservation work, irrigation, and flood control. 

Nonconstruction Work 
Nursery schools. 
Clerical and stenographic work. 

1. For governmental agencies. 

2. F'or other than governmental agencies. 
Resident agricultural training. 

Agricultural demonstration (County Agent assistance, etc.). 
School lunch assistance. 
Library service and book repair. 

Homemaking (projects which included several home economics 

activities which were a part of paid project work). 
Museum work, preparation of exhibits, visual aid materials. 
Statistical and nonstatistical survey and research. 
Recreational leadership. 
Fine arts (arts, music, drama, writing). 
Sewing. 

Miscellaneous Work 

Educational camps for unemployed women. 

Workshops (handicrafts, toymaking and repair, furniture, con- 
struction, etc.). 
Youth center activities (not elsewhere classified). 
Other NYA work (not elsewhere classified) . 

Regulations for the fiscal year 1938 officially designated resident 
projects as part of the prescribed development of the NYA work 
program. Resident projects were at that time designed to provide 
agricultural training and work opportunity .for needy youth from 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



93 



tenant and other farm families and were to be cosponsored by and 
located at agricultural training institutions such as agricultural col- 
leges, junior agricultural colleges, rural high schools, and agricul- 
tural experiment stations. Cainps for unemployed young women 
had been operated in 1936, but a resident program for NYA workers 
of both sexes was not initiated until the fiscal year 1938. Before the 
end of the fiscal year 1938, the camps for unemployed young women 
were discontinued and thereafter the resident program included all 
developments of this type. 

For fiscal year 1939, State youth directors were requested by the 
Washington office to be guided by one additional factor in the plan- 
ning and approval of projects, namely, the adequacy of community 
resources to cooperate in carrying out the project, and to maintain 
it if necessary upon completion. The types of work activities and 
projects remained the same with the addition of a classification for 
"public health and hospitalization work (exclusive of clerical work) 

There were few basic changes in the regulations governing project 
planning and operations for the fiscal year ending June 30, 1940, ex- 
cept for an added refinement in the types of project activities for 
youth workers. Work project activity classifications for "nursery 
school and school lunch assistance" were added, as were "water and 
sanitation'' projects. 

For fiscal year 1941, national NYA officials had scrutinized the 
classifications of the work project activities carefully. Airport de- 
velopment projects were stressed in view of the anticipated defense 
needs and the future employment opportunities to be derived from 
such work experience. Aircraft development projects included the 
development, construction, reconstruction, or improvement of airways 
and airports, provided the written approval of the Civil Aero- 
nautics Authority was obtained with respect to the technical aero- 
nautical features of the project. Responsibility for securing approval 
of the technical aeronautical features from the CAA rested with the 
cosponsors of the project ; the State youth administrator was required 
by the Washington office to obtain from the cosponsors the necessary 
certification of the CAA before work was begun on any NYA project 
involving civilian landing areas. Aircraft projects for the fabrica- 
tion of boundary cones, wind socks, and corner markers did not require 
certification by the CAA. However, plans for the placement of 
these markers upon land areas required approval of the airport sec- 
tion field representative. Projects were also stressed which provided 
for the construction of simple seaplane facilities. These did not re- 
quire certification by the CAA except that water areas upon which 
these facilities were to be placed had to be approved by the airport 
section field representative as to the adequacy for seaplane operations. 



94 



NATIONAL YOUTH ADMINISTRATION 



It was further stipulated by the Washington office that on all seaplane 
landing projects, where such facilities were to be placed in navigable 
waters, the approval of the district officer of the Corps of Engineers, 
U. S. Army, had to be secured in addition to the approval of the CAA. 

The Washington office also encouraged projects which provided 
work experience in such fields as mechanics, machine shop work, main- 
tenance and repair of plants and equipment, and other work of a 
civilian character which afforded good job training for private em- 
ployment. These projects were eligible for, prosecution at any army 
post or military reservation with certain restrictions, namely that 
NYA youth employees could not displace the work of civilian em- 
ployees customarily paid from the budget of the post, and that the 
War Department assumed responsibility for supervision of the NYA 
youth while on the post or station, as well as providing all tools, 
equipment, and material required on the work project, and emergency 
medical attention while the NYA youth were performing scheduled 
work. The establishment of resident projects on the grounds of 
army posts or military reservations was not encouraged by the Wash- 
ington office. 

Four types of projects were declared ineligible, as follows : 

1. NYA project workers could not perform maintenance work cus- 
tomarily carried out by the regular employees of public agencies; 

2. NYA youth workers could not be employed on projects for the 
repair and rebinding of public school textbooks ; 

3. Projects for the construction, rebuilding, repairing, or replan- 
ning of penal or reform institutions were ineligible where the in- 
stitution had or expected to have facilities for the manufacture or 
production of goods ; 

4. Projects for fingerprinting. 

During the fiscal year 1942, there were two work programs in 
operation for unemployed youth. The appropriations act stipulated 
that both a regular program and a defense program should be con- 
ducted. The types of activities which were prosecuted under the 
defense program were as follows : 

Machine. Aviation mechanics. 

Sheet metal. Radio. 

Welding. Industrial sewing. 

Foundry. Auto mechanics. 

Forge. Woodworking. 

Electrical. Patternmaking. 

Minimum requirements were established covering the operation of 
each workshop, which included the equipment requirements for each 
type of shop. There were no standard equipment requirements for 
workshops operated under the regular program. 



FINAL REPORT, FISCAL YEARS 1936-1943 



95 



The regular program was ordered reduced on March 3, 1942, by 
the National Administrator, and substantial employment reductions 
were effected on and after April 1. Those work activities were to 
be discontinued as rapidly as possible which contributed least to the 
war effort, and NYA State administrators were ordered to concen- 
trate their entire employment in fields of work activity which 
contributed directly and substantially to the war program. The 
nonconstruction activities which were to be discontinued not later 
than the beginning of the first pay roll period in April 1942 were : 

Craft activities, Recreational assistance. 

Research, statistical and Nursery school assistance. 

survey assistance. Institutional services. 

Library service. Music. 

The following construction activities were ordered discontinued, if 
possible, not later than the beginning of the April pay roll period, 
or if this were impossible, within 60 days thereafter : 

Curb marking, highway landscaping, roadside improvement, con- 
struction of trails, footpaths, etc. 

Improvement of grounds around public buildings. 

Construction, repair, and remodeling of recreational facilities. 

The following activities were permitted to be continued on a limited 
scale : 

Construction — buildings under construction were to be completed 
as rapidly as possible and no new construction could be initiated 
without prior approval of the National Office. Only construction 
projects would be considered favorably which served the war effort 
and which were in compliance with the War Production Board's 
construction conservation order. 

Domestic sewing — this work activity could be continued only where 
articles were being made for the military services or the work ex- 
perience was leading directly to regular employment in production 
for the military services. 

Graphic activities — only photographic work and silk screen process- 
ing/ could be continued if work was being done for the military 
services and for State and local defense councils. 

Clerical assistance — such projects could be continued only where 
there were shortages of clerical workers in war industries or in govern- 
ment agencies and the work experience provided on the NYA projects 
led to regular employment in these fields. 

School lunch projects — only projects could be operated in areas in 
which no other agencies were operating such programs and in which 
the school system was unable to provide adequate lunches for all needy 
pupils. 



96 



NATIONAL YOUTH ADMINISTRATION 



By July 1, 1942, the beginning of the last year of NYA operations, 
all nonessential work project activities had been eliminated, and the 
NYA moved into its war production training program. Youth were 
employed entirely on shop projects covering the following shop 
activities : 



Machine. 

Aircraft sheet metal. 

Other sheet metal. 

Arc welding. 

Gas welding. 

Aircraft welding. 

Foundry. 

Forge. 

Radio. 

Electrical. 

Automotive mechanics. 



Aircraft mechanics. 
Aircraft engine mechanics. 
Patternmaking. 
Joinery. 

Aircraft woodwork. 
General woodwork. 
Industrial sewing. 
Mechanical drafting. 
Other shop activities. 
Clerical activities. 



Work stations and equipment requirements were outlined in detail by 
the Washington office for each specific type of activity. 

Cosponsors' Contributions 

Local public agencies, such as city councils, welfare departments, 
county agricultural agencies, school boards, and park boards planned 
work projects in consultation with local NYA authorities which would 
benefit the community and which would provide the youth with 
desirable work experience. The local agencies acting as cosponsors of 
projects underwrote a portion of the cost. 

The public officials and agencies which acted as cosponsors for 
projects tendered a guarantee of the projects' value and community 
interest in its success by providing materials, equipment, and, in a 



Table 27. — Total Federal and cosponsors' expenditures and percent cosponsors' 
expendittires are of total expenditures, NYA out-of-school work program, fiscal 
years 1936 through 1943 



Fiscal year 



1936-38 

1939 

1940 

1941 

1942 combined programs. 



Regular program. 
Defense program. 



1943 (July 1942-March 1943). 



Total 



$95, 075, 565 
63, 642, 389 
82, 405, 189 
133, 217, 571 
107, 769,185 



56, 263, 089 
51, 506, 096 



34, 870, 822 



Total Federal 
expenditures 1 



$84, 140, 753 
53, 821, 593 
67, 173, 511 

118, 994, 018 
96, 934, 212 



47, 680, 070 
49, 254, 142 



34, 295, 075 



Total cosponsors' 
expenditures 



2 $10, 934, 812 
9,820, 796 
15, 231, 678 
14, 223, 553 
10, 834, 973 



8, 583, 019 
2, 251, 954 



Percent of 
total 



11.5 
15.4 
18.5 
10.7 
10. 1 



15.3 
4.4. 



1 Data for the fiscal years 1936 through 1939 are actual expenditures derived from Treasury voucher pay- 
ments. Figures for the fiscal years 1940 through 1943 are encumbrances obtained from NYA finance reports. 

2 Data for 1936 through 1938 not available by each fiscal year. 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



97 



large number of cases, skilled and technical supervision. The co- 
sponsors made possible a varied and flexible program and enabled a 
much larger percentage of Federal funds to go to the youth workers 
in the form of wages. 

Cosponsors' expenditures ranged from 11.5 percent of total Federal 
and non-Federal expenditures in the fiscal years 1936 through 1938 to 
18.5 percent in 1940. The total Federal expenditures during these 
5 years were $205,135,857 and total cosponsor expenditures amounted 
to $35,987,286. During the fiscal year ending June 30, 1941, cospon- 
sors' expenditures began to decline rather sharply. During this year, 
total Federal expenditures reached $118,994,000, while cosponsors 
contributed $14,223,600, or 10.7 percent of the total expenditures. 
During the fiscal year 1942, cosponsors' contributions were still 10 
percent of the total expenditures, or $10,835,000. However, there 
was considerable difference in the amount of cosponsor contribu- 
tions between the regular work project program and the defense 
work program. Cosponsors contributed 15.3 percent of total 
money expended for the operation of the regular work project 
program, but only 4.4 percent of the total expenditures for the 
operation of the defense work project program. 1 Therefore, the Na- 
tional Youth Administration assumed for the defense work training 
program over 95 percent of the total costs of carrying on the defense 
work projects. This is further borne out during the first 9 months 
of fiscal year 1943 when cosponsors' expenditures were only 1.7 per- 
cent of the total expenditures. NYA carried over 98 percent of the 
entire cost of the war production training program. During the last 
two years of operating the defense and war production training pro- 
grams, some material contributions were received from the War and 
Navy Departments and the Maritime Commission, since the National 
Youth Administration was producing articles for these agencies. 
However, it was not possible to make an estimate of what these con- 
tributions amounted to since these other Federal departments have 
not submitted official expenditure figures of their contributions of 
materials to NYA projects. 

Project Supervision 

The efficiency of the NYA work project program and its value to 
the youth depended in large measure on the quality of the supervision. 
Project supervisory employees, as distinguished from administrative 

1 Cosponsor contributions for fiscal years 1942 and 1943 to the defense and war produc- 
tion training programs could not be tabulated as in previous years since contributions of 
materials from other Federal agencies cannot be considered as money contributions to an- 
other Federal agency. Therefore, materials furnished by the War and Navy Departments 
or Maritime Commission could not be included as cosponsor contributions to NYA project 
operations. 



98 



NATIONAL YOUTH ADMINISTRATION 



employees, were persons in supervisory positions on NYA projects 
employing youth workers. They were paid upon a per diem, monthly, 
or annual basis from funds authorized for the operation of youth work 
projects. There were no extensive studies made of the qualifications 
of the supervisors for the particular responsibilities entailed in 
project supervision. Undoubtedly, there were wide variations in the 
training and abilities of project supervisors, especially in the first 
5 years. These variations arose out of a lack of national and even 
State supervisory personnel standards for the different specialized 
project activities. State youth administrators selected supervisors 
in accordance with their best judgment of the supervisory needs of 
particular project activities, or delegated this responsibility to dis- 
trict or area supervisors. The degree to which cosponsors were able 
to contribute qualified project supervisors was a factor in the efficiency 
of the supervision. 

In the first 5 years, only broad guides were indicated by the na- 
tional office to assist the State youth administrators in the selection 
of project supervisors. A person chosen to supervise NYA youth 
employees was selected on the basis of the following general criteria : 

1. A sympathetic and intelligent understanding of youth and their 
problems ; 

2. An understanding of and belief in the American way of life and 
its democratic institutions : 

3. Ability to assist young people in their adjustment for living and 
working in a democratic world; 

4. Knowledge of work to be supervised and ability to impart its 
basic content to the youth on NYA projects. 

On many projects, during this 5-year period, cosponsors donated per- 
sonnel for NYA projects, particularly for construction, clerical, and 
library projects. The NYA maintained an over-all supervisory re- 
sponsibility for these projects in order to assure validity of work 
experience, timekeeping, and other checks on production efficiency. 

With the exception of supervision donated by cosponsors, NYA- 
paid supervisors were responsible for direct operation of local NYA 
projects. Resident centers and workshops were administered and 
supervised by NYA employees with few exceptions. 

The men and women who were project supervisors were, in gen- 
eral, keenly aware of the importance of sound work experience, and 
took a positive interest in the youth themselves and their personal 
problems or maladjustments. They counseled the youth workers* 
arranged for related training, and advised them on beneficial leisure- 
time activities. In addition, they performed all the routine respon- 
sibilities of project operations, such as timekeeping, youth personnel 
records, and youth production records. 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



99 



When the development of construction and workshop projects was 
stressed beginning with fiscal year 1938, skilled foremen or supervisors 
were employed who were competent to direct more specialized opera- 
tions. The possible sources of personnel were vocationally trained 
school personnel, persons who had received experience in manufactur- 
ing plants, and members of skilled craft unions. 

In November 1940, the national office issued a manual to guide 
State youth administrators in the recruitment and selection of quali- 
fied shop foremen. Only a limited number of job specifications for 
foremen were included in this manual. In July 1942, the national 
office laid down specific qualifications for shop foremen which were 
the basis for selection of shop personnel. National regulations re- 
quired that the shop foreman be a recognized tradesman in a particular 
trade, and accupationally competent in that particular skill. The 
employment specifications were designated for positions in the follow- 
ing types of war production training shops : 

Machine. Welding. Industrial sewing. 

Sheet metal. Auto mechanics. Woodworking. 

Foundry. Radio. Patternmaking. 

Forge. Electrical. 

These specifications also contained detailed information concerning 
f oremanship responsibilities and constituted a basis for shaping fore- 
man training programs at the regional and local levels. Owing to 
labor shortages of skilled tradesmen and job technicians, NYA offi- 
cials encountered difficulties in securing shop foremen who could meet 
the particularized shop foreman qualifications outlined by the national 
office. National officials realized that the standards outlined served 
as goals rather than as rigid requirements. 

Supervisory Costs 2 

Information is not available as to the cost of supervision on the 
out-of -school work program for the fiscal years 1936-39. In fiscal 
year 1940, the average monthly employment of nonyouth (super- 
visory) employees was 9,934, with an average monthly wage of $92.85. 
Total expenditures for supervisory labor were 16.6 percent of the 
total expenditure of funds for the operation of the work program dur- 
ing that year. Wages paid for supervision during fiscal year 1941, 
the year of greatest youth employment, increased to 17.1 percent of 
the total work program expenditures, and the average monthly em- 
ployment of nonyouth employees rose to 16,052 with an average 
monthly wage of $101.99. 

2 The figures showing average monthly employment includes every nonyouth employee 
who was on the pay roll during the month, whether for 1 day or the entire month. Aver- 
age monthly earnings are not to be confused with average monthly rates of pay. Average 
monthly earnings include money actually earned during a particular month by persons 
intermittently employed on a per diem basis, and also earnings of persons who did not work 
a full month. 

566597—44 8 



100 



NATIONAL YOUTH ADMINISTRATION 



Table 28. — Average monthly employment of nonyouth employees and total and 
average monthly earnings? national summary, fiscal years 1940 through 1943 



Fiscal year 


Number of 
employees 


Earnings 


Amount 


Monthly 
average 


1940 


9,934 
16, 052 
20, 096 
12, 328 


$11, 067, 780 
19, 646, 062 
26, 847, 292 
19, 326, 151 


$92. 85 
101.99 
111.33 
142. 52 


1941 


1942 


1943 2 





1 Total monthly earnings exclude late and supplemental pay rolls, while table 31 includes total funds 
encumbered for supervision. 

2 June 1943 data not available, therefore the average monthly employment and total earnings are for the 
previous 11 months. 



During the next fiscal year 1942, the average monthly employment 
of supervisory personnel reached 20,096 persons earning an average 
of $111.33 a month; 29.0 percent of the total work projects expendi- 
tures were paid for supervisory wages. The regular and the defense 
programs were in operation during this year and supervisory costs 
were obtained for each program. Under the regular program the 
cost of supervision amounted to 25.3 percent of the total expenditures 
for both programs, while the cost of supervision for the defense pro- 
gram was 32.6 percent of total expenditures. During fiscal year 1943, 
the supervisory costs reached 46.4 percent of the total expenditures 
for the war production training program, and an average monthly 
employment of 12,328 was maintained, with average earnings of 
$142.52 a month. 3 Supervisory costs for the operation of specialized 
workshops and for the maintenance of resident centers under the war 
production training program were much higher than when local 
co-sponsors contributed supervisory personnel and projects were of a 
less specialized nature. Moreover, the costs were relatively greater 
because of the smaller number of youth employed during this year. 4 

Training Program for Shop Supervisors 

If NYA was to give specialized work and training to inexperienced 
youth in preparation for entrance into defense and war industries, a 
program for the training of its supervisory personnel was essential. 

Late in 1940, a review of the available sources of manpower indicated 
that a very limited number of skilled persons was available for shop 
supervisory positions. Since NYA shop supervisors were required 
to organize and manage the shop unit, prepare production schedules, 
supervise, direct, and train youth in their production work, NYA 
undertook to improve the training skills of its foremen and supervisors. 

3 Under the general classification of supervision was included clerical workers, timekeep- ,j 
ers, and other nonyouth project maintenance employees. These reduced the average 
monthly wage. Skilled supervisors and technicians were paid the union scale of the local 
community in which they were employed. 

4 See table 31 for labor and nonlabor encumbrances, out-of-school work program, for 
fiscal years 1940-43. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



101 



The national office prepared a foreman's manual entitled "Training 
Youth in Work Habits Through Work Projects," with a view to 
assisting shop foremen in meeting their problems of training workers 
in the work habits and attitudes essential to industrial employment. 
The manual outlined the foreman's duties as a shop manager and 
suggested methods and techniques through explanatory graphic charts 
and devices for the effective discharge of his duties. Two facts were 
continually emphasized — the individual differences in youths' capaci- 
ties and abilities, and the importance of maintaining the worker's 
interest as a basic motivating factor in the learning process. 

The material was disseminated to the field through a series of 
3-day regional conferences. The regional supervisors in turn con- 
ducted State and county conferences. All supervisors, including per- 
sonnel loaned to NYA by co-sponsors, were encouraged to participate. 

To orient NYA workers properly and to improve the quality of 
shop supervision, NYA officials also outlined an induction training 
program, which the foremen were to conduct. This program was to 
provide youth with information on NYA employment procedures, 
safety practices, attendance regulations, production items, relation- 
ship between supervisor and youth, and possible employment outlets 
resulting from the NYA work and training. The devices used for the 
induction training course were counseling, interviews, printed infor- 
mation, group instruction, shop bulletin boards, and factory visits. 

The methods suggested for training the worker in performance of a 
new job involved five steps : 

1. The youth worker was told the "how" and the "why" of a job ; 

2. The worker was first shown by the foreman how the job was 
done; 

3. During this demonstration the "how" and the "why" of the par- 
ticular operation was explained to the worker ; 

4. The worker then performed the assignment under the supervi- 
sion of the foreman until he could execute the operation ; 

5. The foreman checked the worker during each step of the opera- 
tion. 

Group instruction was suggested where the subject matter was 
adaptable to this type of instruction such as safety education, care of 
tools, care of machines, and shop cleanliness. 

The progress of the youth worker was checked by the foreman on 
individual youth rating charts. The items included on this chart 
were accuracy in production, efficiency on the job, ability to follow 
ordinary shop procedure, observance of safety and health precau- 
tions, proper care of tools, equipment, and supplies, and personality 
characteristics such as ability to get along with others, personal con- 
duct on the job, and personal appearance. 



102 



NATIONAL YOUTH ADMINISTRATION 



The national office further attempted to stimulate foremanship 
training in March 1942 by requesting State youth administrators to 
analyze the foreman training needs within the State. The NYA 
Administrator pointed out the importance of efficient operations and 
the necessity for an employee understanding of the function of the 
project, the relationship of their particular unit to those functions, 
and the duties and responsibilities of their own positions in the unit. 
The most important immediate need was for an evaluation and im- 
provement of foremanship at the project level. 

The following subjects were presented for analysis by State youth 
administrators : 

1. The training needs related to general objectives and problems — 
questions concerning the induction of the new employee in the or- 
ganization and operation of the NYA program and the continued 
education of the established employee ; 

2. Training needs which develop from special aspects of NYA 
work — the reasons for turnover, the amount of upgrading, and the 
difficulty of filling supervisory positions with qualified personnel ; 

3. Training needs at the project level — the criteria used to deter- 
mine the training needs for supervisors, questioned the methods used 
for rating foremen and asked who was responsible for the training of 
these foremen ; 

4. The need for employee participation in the development of train- 
ing activities — the methods by which employees could be persuaded 
to voluntarily participate in the development of a training program ; 

5. The need for evaluation of training methods already in use — 
training programs already in operation as a base from which to build. 

Shortly after requesting State administrators to conduct this survey, 
the national office initiated a formal training program in May 1942. 
Arrangements were made with the Training- Within-Industry Di- 
vision of the War Manpower Commission to train a selected group of 
NYA supervisors in strategic localities throughout the country for the 
purpose of qualifying them to conduct a job-instructor-training pro- 
gram with NYA shop supervisors. 

Within 3 months, every shop foreman employed by the NYA had 
been given training of the type advanced by the training-within- 
industry program. 

The objectives of the foreman training program were to prepare 
NYA foremen in the discharge of their total responsibilities as pro- 
duction supervisors, to train new workers in quality and quantity 
production as quickly as possible, to avoid accidents, to avoid damage 
to machines and equipment, and to conserve strategic materials. 

The method for achieving these objectives was broken down as 
follows : 



FINAL REPORT, FISCAL YEARS 19 36-19 43 



103 



1. The preparation of the foreman for introducing the NYA worker 
to a job by establishing a time limit for the achievement of an opera- 
tion : by breaking down the job into component parts so that the NYA 
jouth would do an operation correctly in each step; by having the 
necessary tools, equipment and materials available for the job ; and by 
having the work station in proper order. 

2. The foreman prepared the worker to receive the instruction by 
putting him at ease ; by finding out what he already knew about the 
job ; by securing his interest ; and by placing him in the proper physical 
position for observing the job from the right angle. The foreman 
was instructed to tell and demonstrate to the youth how the job was to 
be done. This material was presented to him in small, simple doses; 
the key points were made clear to him and the demonstration and ex- 
planation of the job was repeated. 

3. In the third step the foreman was to provide an opportunity 
for the youth to try out his performance by actually doing the work 
under foreman observation. This operation was repeated and the 
youth worker asked to explain the key points of operation and to ex- 
plain why he was performing the task and what he was doing. 

4. This performance was to be repeated until the supervisor knew 
that the youth was able to perforin the operation satisfactorily. 
Thereafter, the youth worker was placed on his own responsibility 
to acquire the feel of the job through his own performance. If addi- 
tional instruction were needed, the youth was directed to whom to 
go for further assistance. The foreman checked the work of the 
youth frequently but tapered off extra coaching as expeditiously as 
possible until the new worker was able to continue operations under 
normal supervision. 

5. Where production jobs did not provide well-rounded experience 
in all the necessary operations, a program of "devised jobs" was de- 
veloped. (A "devised job" was a term used for a special work assign- 
ment for the purpose of supplementing training not present in cer- 
tain production operations, thereby giving experience in all the funda- 
mentals of machine operations so that a well-rounded background was 
given to each learner.) 

Further assistance was given the foremen through a program which 
blueprinted each job operation and specified job standards as to 
tolerance of work, time schedules, and complete job descriptions. 

The accurate record of the number of supervisors trained from 1910 
to 1942 is unavailable. However, from July 1, 1942, to March 31. 1943, 
more than 3,000 shop foremen were given the job-instructor training 
program. 

The foregoing foreman training program was followed in fisca] 
year 1943 by a "shop organization program," which embraced a review 



104 



NATIONAL YOUTH ADMINISTRATION 



of the principles and techniques of the earlier training materials and 
also presented a more definite concept of the responsibilities of shop 
management, shop production, job analysis, and specific information 
on the training of youth in the operations of one work station. 

The "shop organization training program/ 5 prepared by NYA's 
Operations Division, was given to more than 5,000 NYA foremen by 
April 15, 1943. 

NYA attempted to provide qualified supervision of its shops by (1) 
employing the best trained foremen available within its limited budget, 
and (2) training those already employed. 

The production efficiency of NYA shops was improved by the fore- 
man training programs as measured by increased production and 
industries' ready acceptance of NYA youth workers. 

NYA Relations With Employers and Organized Labor 

To be successful, a Government work program for youth had to 
have the active cooperation of employers and organized labor. The 
training of youth through a work experience program involved wages, 
standards of work, and production — each of which was of interest to 
labor and employer groups. Their views continuously influenced the 
administration of the National Youth Administration. There was 
constant awareness by the NYA officials — national, State, and local — 
that the cooperation of management and labor was vital to work 
project operations and in particular to the youth who were employed. 
Through these work projects, the supply of labor and its composition 
were being affected. The NYA attempted to fit its work program 
into the general positions which management and labor took in con- 
nection with methods of dealing with youth through a work activity 
program. It would be fallacious to infer that the NYA was success- 
ful in maintaining or developing the sustained support of either of 
these important industrial groups. There were constant criticisms 
of its program, as there were of other public agency programs. Since 
the NYA was a relief agency as well as an employment and training 
agency, it was constantly reconciling the interests of relief, employer, 
and labor groups in the carrying out of its program. Throughout its 
8 } r ears of operation, the NYA made every effort not to influence the 
hundreds of thousands of young men and women who were employed 
on NYA work projects in their attitudes toward either organized labor 
or employers. On the contrary, it was always cognizant that it was 
training new entrants for the labor market and that the youths' em- 
ployability was enhanced if NYA youth were able to adjust to the 
developments which had taken place in modern industry, particularly 
insofar as employer-employee relations were involved. 



FINAL REPORT, FISCAL YEARS 193 6-1943 



105 



The national office of the NYA did not develop a specific national 
program of labor relations for State administrators to follow except 
the general instruction or requirement that representatives of em- 
ployers and organized labor be appointed to State and local advisory 
committees. State and local NYA officials recognized the importance 
of representation of these groups on advisory committees not only 
in order to secure cooperation in the development of work projects, 
but to obtain employment outlets for project youth. In certain in- 
stances, this representation was perfunctory and routine, involving 
only attendance at meetings and conferences. In many States, how- 
ever, especially in the last 3 years of the program, State and local 
officials called frequent meetings of labor organizations and manage- 
ment groups and were successful in securing active cooperation. 

There also was representation of labor and management on the 
NYA National Advisory Committee. At the annual meetings of this 
Committee, labor and management expressed their positions in regard 
to the national policies of the NYA. 

While there was no outlined program of labor relations, an estab- 
lished policy of the NYA was the maintenance of the most satisfactory 
labor relations possible. For example, in the NYA shops the employ- 
ment of skilled tradesmen as supervisors meant that the great majority 
of these supervisors came from trade unions. These supervisors who 
had worked many years at their trade or craft as a matter of course 
inaugurated good work habits and maintained good labor relations. 
The skilled supervisors were paid the rate of pay prevailing for their 
trade. At the local level, before establishing a NYA workshop, local 
NYA officials would meet with the local representatives of manage- 
ment and labor (who in most cases were members of the local advisory 
committee) and endeavor to iron out any anticipated features of the 
shop project which might result in criticism. As would be expected, 
much closer relations with management and labor were maintained at 
the local level than at either the State or national levels since the local 
level was where the work projects were prosecuted. 

Relationships With Labor 

The Congress of Industrial Organizations was less critical in gen- 
eral of the NYA than was the American Federation of Labor. The 
CIO did not find the work experience program for unemployed youth 
in conflict with organized labor, since its opinion was that NYA did 
not train skilled workers. The CIO approved the NYA's policy of 
increasing the general employability of young workers. 5 In general, 
the criticism of the CIO was that the NYA was not sufficiently ex- 
tensive and should be enlarged to include more unemployed young 

5 Lewis L. Lorwin, Youth Work Programs, prepared for the American Youth Commis- 
sion (Washington : American Council on Education, 1941), ch. VI, pp. 104-117. 



106 



NATIONAL YOUTH ADMINISTRATION 



people on its out-of-school work program. The CIO also took the 
position that NYA wage rates should be raised and that regional 
differentials in the NYA wage scale should be eliminated. 6 

The American Federation of Labor was more critical of the work 
program than the Congress of Industrial Organizations because the 
work performed by youth on NYA projects was considered as teaching 
youth skills and trades. The work program gave youth more work 
experience in the metal and building trades than in other crafts or 
industrial operations. Since these were the two dominant AFL trade 
unions, in which the CIO was not so interested, the AFL scrutinized 
and criticized these types of work activity more than did the CIO. 
The building trades were fearful that NYA by constructing buildings 
at the low wages paid NYA youth would flood the labor market with 
youth claiming skills as a result of NYA work project employment 
and would replace highly skilled workers who were working at the 
trade thus aggravating unemployment among skilled workers and 
contributing to lower wage scales. The metal trades were fearful 
that the preliminary training given to the youth in metal shops would 
break down the apprenticeship training program and provide a short 
cut to obtaining skills which under the apprenticeship system required 
from 2 to 4 years. The AFL construction and metal trades depart- 
ments were in agreement as to the need of preliminary training of 
youth and the development in youth of sound work habits. During 
the last 2 years of NYA operation, the AFL became more informed 
as to the objectives of the NYA work program and its criticism be- 
came less vocal. 

There was a tendency on the part of NYA officials to use the word 
"apprentice" loosely in terms of the type of work being performed 
by NYA project youth. This created misunderstanding on the part 
of organized labor, and on February 27, 1939, the National Adminis- 
trator wrote to NYA State administrators urging members of their 
administrative staffs and supervisors of projects to guard carefully 
against a loose use of this term. Apprenticeship was carefully de- 
fined in this communication, and the specific difference between 
"apprentice training" and the work performed by youth on NYA 
work projects was demarcated. 7 

There was no objection to the NYA student work program, which 
was commended by the AFL at its conventions and its continuance 
recommended. At its 1940 convention the AFL demanded that it 
be represented directly in an advisory capacity on the NYA in order 
to determine "national policies for vocational education and appren- 
tice training." 8 

6 Ibid. 

7 Letter Y-66. Subject : Definition of Term "Apprentice," dated February 27, 1939. 

8 Report of the Proceedings of the Sixtieth Annual Convention of the American Federa- 
tion of Labor, 1940 ; Washington Federation, 1941, pp. 585-587. 



FINAL REPORT, FISCAL YEARS 193 6-1943 



107 



In order to develop a more satisfactory relationship with organized 
labor and management, the Administrator established an office of 
labor relations in the national office in November 1940. The purpose 
of this office was to serve in a liaison capacity at the national level 
with the various labor unions, to interpret to labor unions the pro- 
gram of the NYA, and to interpret to NYA regional and State 
officials and local supervisors the policies of labor unions with respect 
to the types of work activities carried on in the NYA work program 
for out-of-school, unemployed youth. 

As a means of developing a more cooperative relationship, a national 
labor advisory committee was appointed in February 1941, composed 
of the following representatives from the American Federation of 
Labor : Matthew Woll, vice president, American Federation of Labor ; 
John P. Coyne, president, building trades department; John P. Frey, 
president, metal trades department; E. E. Milliman, president, 
Brotherhood of Maintenance and Way Employees ; Arnold S. Zander, 
president, American Federation of State, County, and Municipal 
Employees. Two formal committee meetings and several informal 
meetings with individual members of the committee were held. The 
office of labor relations made considerable progress in maintaining 
closer working relationships with AFL unions and served as co- 
ordinator for the National Administrator in dealing with management 
and labor. 

Employer Relationships 

In general, employer groups took no different positions toward the 
NYA than toward any public agency producing commodities which 
compete with the production of private industry. In general, the 
spokesmen of industry approved of the work experience training which 
the NYA provided through its work project program, inasmuch as 
there was the feeling that this increased the value of the youth to the 
employer. There was an opinion expressed by employers that the 
NYA should not pay wages comparable to those paid by private 
employers, so that the youth worker would have an incentive to seek 
and accept private employment. In small localities, employers ob- 
jected to construction of public buildings or the making of improve- 
ments on public buildings by NYA because this took work away from 
private contractors. During the last 2 years of the NYA program, 
private employers and industry recruited NYA project workers and 
there was general acceptance of the quality of the work experience 
which youth had received in NYA shops. Such a favorable attitude 
was to be expected in view of the increased shortages of manpower 
throughout the country. NYA local officials directed their efforts 
toward a cultivation of employer acceptance of NYA project workers. 
The NYA adjusted its project activities under the defense and war 



108 



NATIONAL YOUTH ADMINISTRATION 



production training programs to meet the needs of defense and war 
industries. This closer cooperation between employers and NYA 
officials resulted in corresponding improvements in the type of work 
projects conducted by the NYA and in the quality of project training 
in order to meet employer specifications. 

Industry, like organized labor, came to understand that the pro- 
duction carried on in the NYA shops in most instances was made up 
of articles and material which in terms of industrial production were 
considered too small in the quantity production of any particular 
item to compete with industry. What affected industrial production 
also affected labor. If production were taken away from industry, 
it necessarily followed that the employment of labor would be affected. 
As the NYA program advanced and as labor officials and management 
came to know and to understand the program, they developed a high 
respect and regard for the attempt made by the NYA to prepare 
inexperienced young people for employment. 

The NYA work program for youth demonstrated the necessity of 
close collaboration with organized labor and management. A youth 
work experience program could not isolate itself from the practical- 
ities of adjustment and readjustments of its policies to those of 
management and labor. 



Out-Of-School Work Program: 
Facts on Youth Employed 

From the beginning of the two youth programs, the CCC and the 
NYA, there was no expectation that the work and training needs of 
the millions of unemployed youth would be met. To the extent funds 
were available and through a flexible and extensive Nation-wide system 
of varied work projects, the National Youth Administration employed 
as many as possible of the unemployed group of young men and women 
in every section and area of the country and gave these youth work 
experience, training, and vocational guidance. This chapter presents 
statistics on the number of youth employed by the National Youth 
Administration, their wages and hours of work, labor and nonlabor 
expenditures, characteristics of the NYA project youth, project turn- 
over, and duration of employment. 

Employment on the Out-of-School Youth Work Program, 

1935-43 

From 1935 until the end of fiscal year 1943, an estimated 2,677,000 
different youth were employed on work projects operated under the 
out-of -school work program. Of this number, 45 percent (1,209,000) 
was young women. The number of youth employed varied within the 
limits of yearly appropriations available to the National Youth Ad- 
ministration. 

Table 29. — Estimated number of different youth employed on the NYA out-of-school 
work program, by sex, fiscal years 1936 through 1943 
[000] 



By fiscal years Cumulative from 1936 1 



Fiscal year 


Total 


Male 


Female 


Total 


Male 


Female 


1935-36 2 


200 


115 


85 


200 


115 


85 


1936-37 


250 


128 


122 


360 


191 


169 


1937-38 


290 


147 


143 


516 


270 


246 


1938-39 


412 


235 


177 


722 


389 


333 


1939-40 


575 


324 


251 


1, 080 


590 


490 


1940-41 


976 


591 


385 


1,772 


975 


797 


1941-42 combined programs 


3 900 


3 470 


3 430 


2, 378 


1, 303 


1, 075 


Regular program 


586 


236 


350 








Defense program 


380 


298 


82 
169 








1942-43 


400 


231 


2, 677 


1, 468 


1,209 



1 TJnduplicated count of the number of different youth employed during period covered. 

2 Based on operation of the program for 6 months only. 

3 TJnduplicated count of the number of different youth employed during fiscal year 1942 on the regular 
and defense programs combined. 

109 



110 



NATIONAL YOUTH ADMINISTRATION 



During the first half of fiscal year 1936, the average monthly 
employment was 133,730, of which 42 percent was girls. The next 
year average monthly employment rose to 175,974, with 49 percent 
young women. During the third year of operation, the average 
monthly employment was 149,376, with 49 percent young women. 
The fourth year of NYA project operation (fiscal year 1939), the 
first appropriation was made by Congress to the National Youth Ad- 
ministration in the amount of $75,000,000, with the privilege of using 
the previous year's unexpended balance. 1 With an appropriation of 
this amount, the average monthly employment reached 227,269, of 
which 43 percent was girls. An increase in appropriation to $100,- 
000,000 2 for the fifth year of operation enabled the employment of 
an average of 264,460 out-of-school unemployed youth each month, 
with approximately the same percentage of girls employed as during 
the previous year. 



Table 30. — Average number of youth employed per month 1 on the NYA out-of- 
school work program, by sex, fiscal years 1936 through 1943 



Fiscal year 


Total 


Male 


Female 


1935-36 2 . 


133, 730 
175, 974 
149, 376 
227, 269 
264, 460 
326, 602 
239, 666 


77, 066 
90, 164 
75, 947 
129, 378 
149, 138 
182, 924 
128, 444 


56, 664 
85, 810 
73, 429 
97, 891 
115, 322 
143, 678 
111,222 


1936-37 


1937-38 


1938-39 


1939-40 


1940-41 . 


1941-42 combined programs. .. ... ■ _ 


Regular program . ... . _ ... 


154, 306 
85, 360 

78, 587 


60, 901 
67, 543 

45, 302 


93, 405 
17, 817 

33, 285 


Defense program . . _ . 


1942-43 3 





1 Includes youth and nonyouth employees for fiscal years 1936 through 1939; data not reported separately 
for these years. 

2 Based on operation of the program for 6 months only. 

3 June 1943 data not available, average based on previous months. 



For fiscal year 1941, the sixth year of operation, NYA received its 
largest appropriation. Congress appropriated a total of $148,499,375 3 
for the operation of the student work and the out-of-school programs. 
All except $27,600,000, which was allocated to the student work pro- 
gram, was expended on the work program for out-of-school, un- 
employed youth. This was the year when emphasis on work and 
training programs for defense employment was initiated as a step 
toward meeting the anticipated labor demands of the war period. 
NYA stepped up its employment to a monthly average of 326,602 
out-of-school unemployed youth, with 44 percent girls. 

1 In fiscal year 1939, the WPA carried costs of administration. The unexpended balance 
from the previous year was at least $205,000. Of the total appropriation, $21,400,000 was 
allocated to the student work program. See appendix B, table 1. 

2 For fiscal year 1940, ERA Act of 1939 stated that not more than 5 percent of the total 
appropriation was to be used for administrative costs. Of the total appropriation, about 
$27,300,000 was allocated to the student work program. 

3 Excludes all costs of administration, which were specified separately in the appropriations 
act. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



111 



The fiscal year 1942 was one of transition from the regular work 
project program as previously operated to the defense work training 
program. In accordance with congressional stipulation, two programs 
were operated for unemployed out-of-school youth — a regular pro- 
gram which was a continuation of the previous years' type of work 
activities and for which an appropriation of $85,984,000 was made, 
and a defense program for which $56,972,000 was appropriated for the 
employment of not more than 100,000 needy young persons between 
the ages of 17-24 in resident and workshop projects in preparation for 
employment in defense occupations. 4 During this year, the regular 
work project program employed a monthly average of 154,306, of 
which 61 percent was young women, and the defense project training 
program employed a monthly average of 85,360, with only 21 percent 
female. Thus, the combined programs in operation during that year 
gave an average monthly employment to 239,666 youth. In view of 
the fact that the defense projects were designed to meet the labor 
needs of defense industries, relatively few young women were em- 
ployed, since openings in industries for women had not yet developed 
to any marked extent. 

The eighth and last year of operation (fiscal year 1943), Congress 
appropriated $49,729,000 for a war production training program for 
unemployed youth. This appropriation permitted an average 
monthly employment of 78,587, of which 42 percent was young women. 

Through the employment of 2,677,000 different youth on a part-time 
basis for varying periods of work experience, NYA provided this large 
number of young men and women an opportunity to obtain work 
experience under supervision, which not only helped them in finding 
private employment but provided them with a small monthly wage to 
meet their current expenses during the interim they were seeking more 
remunerative private employment. 

Extent Other-Than-White Youth Were Employed on Out-of-School 
Work Program 

From the time of its establishment, NYA pursued the policy that no 
person was to be deprived because of race, creed, color, or national 
origin of any employment, position, work, compensation, or other 
benefits made possible under the program of the NYA. This policy 
of nondiscrimination was carried through in the employment of 
Negroes and other minorities on the work projects for out-of-school 
unemployed youth. A survey in February 1939 indicated that 12.1 
percent of the project workers was Negroes and 1.5 percent other races. 

4 Labor-Federal Security Act 1942, Public Law 146. See cb. II, p. 28. Of the $85,984,000 
appropriated to the regular programs, approximately $16,200,000 was allocated to the stu- 
dent work program. Of the total amount appropriated to NYA for fiscal year 1942, the 
Bureau of the Budget impounded $28,400,000. 



112 



NATIONAL YOUTH ADMINISTRATION 



Beginning with the fiscal year ending June 30, 1942, a weekly count 
of NYA youth workers, by white and other-than-white, was made as of 
the middle Wednesday of each month. During the fiscal year ending 
June 30, 1942, other-than-white employment ranged from 13 percent 
on July 23, 1941, to 18 percent on May 13, 1942. Under the regular 
work project program, operated separately from the defense work 
training program during this fiscal year, the percentage employment 
of other-than-white youth was higher than under the defense project 
training program. Under the regular program, other-than-white 
youth constituted 13.6 percent of youth employed on July 23, 1941, 
and reached a high of 23.3 percent on May 13, 1942. In contrast, 
under the defense training program, other-than-white youth were only 
10.8 percent on July 23, 1941, reached 13.9 percent on December 17 ? 
1941, dropped to 11.1 percent in the middle of February 1942, and were 
up to 13.6 percent by June IT, 1942. There was a higher rate of non- 
white youth employed on work projects under the regular program, 
since there were relatively few opportunities for employment of 
Negroes in defense industries at that time. 

During the fiscal year ending June 30, 1943, when the war produc- 
tion training program was in operation, the percentage of other- 
than-white youth employed on this program ranged from 14.8 percent 
on August 12, 1942, to a high of 22.8 percent on May 12, 1943. This 
increase in the number of colored youth was undoubtedly due to the 
growing scarcity of eligible out-of -school, unemployed white youth 
available for XYA employment, and also to the fact that employment 
opportunities for other-than-white, chiefly Negroes, were developing 
not only in war industries but in civilian services and industries. 

Number Awaiting Assignment 

Until fiscal year 1940 there were about three eligible applicants for 
each position available under the out-of -school work program. Dur- 
ing that year a monthly average of 264,000 youth was employed, 
but on July 31, 1940, there were 451,000 additional young people 
certified as eligible for NYA employment and awaiting assignment. 

During fiscal year 1941 there was an average monthly employment 
of 327,000, while on July 31, 1941, there were 419,000 additional young 
people certified as eligible for NYA employment and awaiting 
assignment. 

During the fiscal year 1942, there was an average monthly employ- 
ment of 240,000, but the number certified as eligible for NYA em- 
ployment and awaiting assignment had fallen to 150,000 on July 
31, 1942. From that time on, the number awaiting assignment dropped 
rapidly until it reached such small numbers that recruiting unem- > 
ployed youth for the war production training projects became in- 
creasingly difficult. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



113 



Wages and Hours of Work 

The wages paid NYA youth workers were low throughout the 
entire period of the program. Exclusive of fiscal year 1943, the 
average monthly earnings varied between $15 and $22, depending on 
whether the youth were employed on nonresident or resident projects. 
These low monthly earnings were due principally to the part-time 
program of work, which was the basis of the out-of-school youth 
work projects. During the first 4 years of the program, the youth 
worked approximately one-third the WPA hours required for full- 
time employment and were paid approximately one-third the WPA 
security wage. The monthly earnings were adjusted upward or down- 
ward, provided that the earnings of young persons in no case exceeded 
$25 a month. During the first 2 years of operation, youth were not 
permitted to work in excess of 8 hours in a single day, or 46 hours 
for each two consecutive semimonthly pay periods. Consequently, 
youth workers on NYA projects could not put in quite 8 full days of 
work a month. Projects had to be devised which provided a stagger- 
ing of the work periods of the youth. Part-time work was scheduled 
according to unskilled, intermediate, skilled, and professional and 
technical work classifications. The State WPA administrator, in 
cooperation with the State youth director, established hourly wage 
rates according to occupational titles. The wage rate could not be 
less than the prevailing hourly wage rate in the locality of project 
operation. 

The maximum number of hours which youth were permitted to 
work each month (46 hours) proved very unsatisfactory from the 
standpoint of maintaining valid project operations and, even more 
important, from the standpoint of providing youth workers with a 
minimum continuity of work experience. To partially overcome the 
handicap to effective work operations of only 46 hours of work a 
month, for fiscal year 1938 the maximum hours of work for NYA 
youth project workers was raised to 40 hours per week and 70 hours 
per month. The maximum 8-hour day was unchanged. 

There were no further changes in the hours of work and rates of 
pay until fiscal year 1940, when the NYA was no longer a part of 
the WPA but had been transferred to the Federal Security Agency. 
Separate wage schedules were then established for the youth em- 
ployed on nonresident projects and for those employed in resident 
centers. The youth employed on nonresident projects lived at home 
and were employed on projects during the day in their local com- 
munity. The schedule of monthly earnings for nonresident workers 
was changed from unskilled, intermediate, skilled, professional, and 
technical work classifications to two general classifications of youth 
workers — class B and class A. The latter classification was designed 



114 



NATIONAL YOUTH ADMINISTRATION 



for a junior foreman and crew leader group and permitted the pay- 
ment of monthly earnings $3 higher than class B workers, the youth 
project workers. Urban and rural wage differentials were established 
based on two population areas, namely, areas over 25,000 and areas 
under 25,000. Three wage regions were created. 5 

For youth working on projects located in the Northern and Pacific 
States, the basic rate was $18 a month in urban and $14 a month in 
rural counties. In the South Central and Southeastern States, the 
rate for urban counties was $14; and for rural counties, $12. In a 
group of States which included Kansas, Oklahoma, Missouri, Ken- 
tucky, West Virginia, Virginia, Maryland, Delaware, and North 
Carolina, the rate for urban counties was $18 ; and for rural counties, 
$14. These wage rates applied to a minimum of 80 percent of the 
youth, the class B workers, on projects in each State, since the regula- 
tions provided that no more than 20 percent of the youth workers 
could be assigned duties as junior foremen or crew leaders and receive 
the $3 higher monthly rate. 

Eesident project youth lived at the project location, and their food 
and lodging were provided by the NYA. On these projects, the 
monthly gross wage, including the cost of shelter and subsistence, 
could not exceed $30 a month for youth in full-time resident or $20 
for part-time resident. The minimum net cash payment to the youth, 
in addition to the subsistence furnished (including food, lodging, 
sanitation, and medical and dental care), was set at $8 a month. 

The wage schedule for fiscal year 1941 eliminated the urban-rural 
differentials. The basic monthly wage rate for nonresident workers 
was set at $18 for wage region I, $14 for wage region II, and $16 for 
wage region III. The monthly rate for junior foremen and for group 
leaders (class A youth workers) was increased to $6 above the basic 
rate for class B youth workers in the same area, but only 5 percent 
of NYA youth workers could be assigned to these more responsible 
duties. The schedule of earnings of resident youth employees was 
unchanged. 

The monthly hours of work were increased and the maximum was 
placed at 100 hours a month rather than 70, the maximum for the pre- 
vious 3 years. 

For fiscal year 1942*, the schedule of monthly earnings for non- 
resident youth employed under the defense program established $25 

5 Wage Region I: Alaska, California, Connecticut, Illinois, Indiana, Maine, Massachusetts, 
Michigan, Minnesota, New Hampshire, New Jersey, New York City, New York State, Ohio, 
Oregon, Pennsylvania, Rhode Island, Vermont, Washington, Wisconsin. 

Wage Region II: Arizona, Colorado, Delaware, District of Columbia, Idaho, Iowa, Kansas, 
Kentucky, Maryland, Montana, Missouri, Nebraska, Nevada, New Mexico, North Carolina, 
North Dakota, Oklahoma, South Dakota, Texas, Utah, Virginia, West Virginia, Wyoming. 

Wage Region III: Alabama, Arkansas, Florida, Georgia, Louisiana, Mississippi, South 
Carolina, Tennessee. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



115 



a month in wage region I, $24 a month in wage region II, and $22 
a month in wage region III. The wage schedules for youth employed 
on the regular work project program were set at $21, $19, and $17, 
respectively, for the three wage regions. The earnings for class B 
youth were scheduled at the same rate as previous years. Not more 
than 5 percent of the nonresident youth employed on the regular pro- 
gram could be assigned to the junior foreman group. The hours of 
work for the regular program were increased to a maximum of 120 
a month and a minimum of 80 hours a month, with a maximum 8-hour 
day. NYA workers on the defense program were required to work 
a minimum of 80 hours a month and a maximum of 8 hours a day and 
160 hours a month. The monthly earnings for youth employed on 
resident projects were unchanged, except that subsistence charges 
were established on a basis that permitted a net payment of not less 
than $8 nor more than $12 to each resident employee. At this point, 
NYA workers were employed almost full time under a wage schedule 
for part-time work. For example, if a nonresident youth in wage 
region I under the regular program worked the maximum of 120 
hours during a month and received the maximum wage of $21 for his 
work, he e#rne;d 17y 2 cents an hour. If a youth employed on a defense 
project worked the maximum of 160 hours during a month and received 
the maximum monthly wage of $25, his hourly rate was a little over 
15% cents. 

During the fiscal year 1943, when the war production training pro- 
gram was operated, hours of work and training for youth employ- 
ees were established within a maximum of 8 hours a day and a mini- 
mum of 160 hours a month. The schedule of monthly earnings for 
nonresident youth employees was established at the same rate as for 
nonresident youth employed on defense projects during the previous 
year, namely, $25, $24,- and $22, respectively, in the three wage re- 
gions. Thus the hourly rate for the minimum monthly hours of 
work was slightly over 15%, 15, and 13y 2 cents. NYA officials recog- 
nized that the hourly rate in no way approached a standard wage 
for comparable work, even for learners, and admitted this consti- 
tuted a grossly inadequate hourly rate for production work. 

The net earning rate for resident youth employees was established 
at $10.80 a pay-roll month, and, in addition, the resident youth em- 
ployees were furnished subsistence, including such items as food, 
lodging, sanitation, medical and dental care, hospitalization, essen- 
tial clothing, transportation, personal laundry services, recreation, 
and other sundry items. 

Beginning with the fiscal year 1941, when the maximum hours of 
work a month were raised to 100, through the fiscal year 1943, when 
the maximum hours were established at 160 a month, there was no 

566597 — 44 9 



116 



NATIONAL YOUTH ADMINISTRATION 



relationship between the total hours worked and a standard hourly 
wage rate. The NYA had established schedules of monthly earn- 
ings which were completely unrelated to any prevailing hourly rates 
of pay for work of a comparable nature. 

In fiscal year 1943, the NYA Administrator recognized that the 
prescribed monthly earnings for NYA youth were completely inade- 
quate in relation to the prescribed monthly hours of work. On pres- 
entation of the facts by regional administrators for specific resident 
projects, exemptions were issued to permit a $15 monthly net wage 
to youth employed on resident projects, exclusive of the cost of sub- 
sistence. The National Administrator also granted exemptions on 
a project basis which permitted maximum monthly earnings of $40 
for nonresident youth on these projects. In no instance were ex- 
emptions issued except upon the recommendation of the regional ad- 
ministrator, with full presentation of facts which involved type of 
production, schedules of production, and monthly hours of work 
required of the youth worker. During the subcommittee hearings 
of the House of Representatives on the NYA request for an appro- 
priation for fiscal year 1944, the NYA Administrator requested the 
approval of Congress for payment of maximum monthly earnings 
of $40 to NYA workers if the program were continued. One of the 
weaknesses of the work program for out-of -school unemployed youth 
was known by NYA officials to be the low monthly earnings, which 
were unrealistic in relation to a standard hourly wage rate for 
learners. 

Average Monthly Earnings of Youth Project Workers 6 

The average monthly earnings of youth during the first 4 years 
of the program ranged from $15.27 in 1936 to $18.37 in 1939. How- 
ever, during this period the average monthly earnings included non- 
youth labor costs, since data on youth and nonyouth monthly earn- 
ings and number of hours worked were not recorded separately for 
these fiscal years by the WPA. 

a Average number of hours worked per month is available for nonresident youth for 
fiscal years 1940 through May 1943 as follows : 

Average number of Jiours 



Fiscal year : worked per month 

1940 53 

1941 57 

1942 combined program 47 

Regular program 46 

Defense program 51 

1943 (through May) 83 



The average hours worked per month by resident youth in relation to monthly earnings are 
not representative, since subsistence deductions were made for these years, except 1943. 
The resident youth lived on the project and combined related training with production and 
resident maintenance duties. 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



117 



Table 31. — Average monthly earnings of youth employed, by resident status, 
fiscal years 1936 through 1943, out-of-school work program 



Average earnings per month 



Fiscal year 


Total 


In residence 


Not in resi- 
dence 


I936 1 : 


$15. 27 
16. 60 
17.40 
18. 37 
15. 80 
15. 69 
16.46 


( 2 ) 

( 2 ) 

( 2 ) 

( 2 ) 
$22. 10 
21. 83 
20. 98 


( 2 ) 
( 2 ) 
( 2 ) 
( 2 ) 

$15. 15 

14. 99 

15. 73 


1937 1 


19381 


19391 


1940 


1941 


1942 combined program.. . _ ___ . 


Defense program 


17. 58 
15. 99 

* 11.44 


20. 85 
21.20 

* 6.40 


16. 32 
15. 47 

4 14. 42 


Regular program . . . 


1943 3-_„_ 





1 Average earnings per month for youth and nonyouth not available, as data were not reported 
separately for fiscal years 1936 through 1939. 

2 Data not available separately for these years. 

3 June 1943 data not available; average based on previous months. 

* Data are net earnings, excluding the value of subsistence and other services furnished. 

The average monthly earnings, beginning with fiscal year 1940, 
represented the average monthly wages actually received by the NYA 
youth workers. In 1940 the average monthly wage was $15.80 for 
both resident and nonresident youth workers. Resident youth work- 
ers averaged $22.10 a month, and youth employed on local projects 
averaged $15.15 a month for 53 hours of work. The average monthly 
earnings varied only slightly in subsequent years . 

In fiscal year 1943, the average monthly earnings for all resident 
and nonresident youth dropped to $11.44. Youth employed on non- 
resident projects averaged $14.42 a month for an average of 83 hours 
of work, while resident youth received only $6.40, inasmuch as cost 
of subsistence at the resident center was not included in net cash pay- 
ments to resident workers, and the national regulations prescribed 
the net earning rate as not to exceed $10.80 a month. 7 

Allocation of Funds to States 

The distribution of out-of-school work program funds was made to 
States on the basis of a youth population formula, with adjustments 
for local variations such as relief needs and disaster conditions 
(droughts, floods, etc.) . 

For 1 year only (fiscal year 1941) the appropriations act required 
the distribution of funds for the out-of-school work program to the 
States on the basis of the youth population of each State. 

During the last year of operation, distribution of funds to the 
States was made on the basis of NYA workshop facilities available 
for the war production training of youth and the location of resident 
projects. 

7 See appendix B, tables 15, 16, and 17, for average monthly earnings of youth employed 
on the NYA out-of-school work programs, by resident status and by States, for the fiscal 
years 1940, 1941, 1942, and 1943. 



118 



NATIONAL YOUTH ADMINISTRATION 



Labor and Nonlabor Expenditures 8 

A total of $467,586,395 was expended on the out-of-school work pro- 
gram during the 8 years of operation. Since NYA had no division of 
finance and statistics during the first 4 years, expenditures were not 
broken down by youth labor, supervisory, and other nonlabor items. 
The total amount expended for the out-of-school work program from 
January 1936 through June 30, 1939, was $137,962,346 for youth labor 
and nonyouth labor. 

Beginning with the fiscal year 1940, the National Youth Adminis- 
tration established its own finance documents, and thereafter analyses 
were maintained of the total amounts paid directly to NYA youth 
in the form of wages and of total amounts paid for supervisory labor 
and for other nonlabor items (equipment, supplies, materials, etc.). 
In fiscal year 1940, a total of $67,173,511 was expended, of which 74.6 
percent involved direct payments to youth for work performed. In 
the fiscal year 1941, $118,994,018 was expended for the out-of-school 
work program, of which 53.8 percent went directly to the youth in 
the form of wages. 



Table 32. — Labor and nonlabor encumbrances f out-of-school work program, 
fiscal years 1940 through 1943 



Fiscal year 


Total 


Youth labor 


Supervisory labor 


Nonlabor 


Amount 


Per- 
cent 


Amount 


Per- 
cent 


Amount 


Per- 
cent 


Amount 


Per- 
cent 


1940 


$67, 173, 511 
118, 994,018 
96, 934, 212 


100.0 
100.0 
100.0 


$50. 141, 265 
64, 050, 836 
47, 932, 211 


74.6 
53.8 
49.4 


$11, 174, 870 
20, 364. 571 
28, 092, 818 


16.6 
17.1 
29.0 


$5, 857, 376 
34, 578, 611 
20, 909, 183 


8.8 
29.1 
21.6 


1941.. 

1942 combined programs. . 

Regular program 

Defense program 

1943 -- 


47, 680, 070 
49, 254, 142 

46, 522, 308 


100.0 
100.0 

100.0 


29. 850. 450 
18, 081, 761 

« 11, 354, 521 


62.6 
36.7 

24.4 


12, 058, 975 
16, 033, 843 

21, 572, 823 


25.3 
32.6 

46.4 


5, 770, 645 
15, 138, 538 

13, 594, 964 


12.1 
30. 7 

29. 2 





1 Represents encumbrances for net wages paid youth employed, exclusive of the cost of subsistence serv- 
ices, which are included under supervision and nonlabor. Subsistence services contributed to the increase 
in supervisory and nonlabor costs. Prior to 1943, these costs were included in gross youth earnings. 



In the fiscal year 1942, a total of $96,934,212 was expended ($47,- 
680,070 on the regular work project program and $49,254,142 on the 
defense training program). Of the total expenditures for both pro- 
grams, 49.4 percent went to the youth in the form of wages. How- 
ever, within the two programs 62.6 percent of funds expended on the 
regular work program went to NYA youth as wages ; and under the 
defense program, only 36.7 percent went to the youth as wages. Dur- 
ing fiscal year 1943, a total of $46,522,308 was expended, of which 
24.4 percent went to youth workers in the form of net wages. It 
should be kept in mind that the funds expended for youth wages ' 



8 See appendix B, tables 1 and 2 for Federal funds expended for the operation of the 
NYA programs. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



119 



during the last year of operation were exclusive of the cost of sub- 
sistence services furnished at the resident centers. 

During the 4 fiscal years (1940-43) for which financial data are 
available, the cost of supervision increased from IT percent in 1940 
to 29 percent in 1942 and to 46 percent in 1943. This is partially ac- 
counted for during the last 2 years of operation, because of the rel- 
atively little cosponsor supervision provided without cost to NYA. 
The major part of work project production was performed for the 
War and Navy Departments, which agencies did not supply super- 
vision as extensively as under the regular program by local cospon- 
sors. Furthermore, the emphasis on metal and mechanical shops and 
the maintenance of resident centers resulted in a much higher super- 
visory cost in relationship to the number of youth on the program. 
Moreover, labor market shortages necessitated the payment of 
higher wages to NYA skilled supervisors and technicians, who were 
compensated according to existing wage structures ; this increased 
supervisory cost. 

Nonlabor expenditures also changed drastically, increasing from 8.8 
percent for fiscal year 1940 to 29.2 percent in 1943. The cost of 
materials, equipment, supplies, etc., for the defense and war training 
projects greatly exceeded that for projects operated prior to the de- 
fense period. Cosponsors of work projects supplied materials, space, 
and equipment to a much greater extent when the work projects were 
initiated by local cosponsoring agencies at the community level for 
the purpose of producing goods and services for the local community. 

Table 33. — Federal funds expended for equipment, fiscal years 1936 through 1943, 
out-of-school work program 

Federal funds 



Fiscal year : expended * 

1936-40 $3,561,410 

1941 - 18,713,345 

1942 combined programs — 4, 771, 148 



Regular program 612, 750 

Defense program 4, 158, 398 



1943 - 567, 216 



Grand total — — 27, 613, 119 



1 Data for the fiscal years 1936 through 1940 are actual expenditures derived from 
Treasury voucher payments, but unavailable for each fiscal year. Figures for the fiscal 
years 1941 through 1943 are encumbrances obtained from NYA finance reports. 

The extent to which NYA bore the cost of project operations is 
further illustrated by an analysis of the funds expended for equip- 
ment purposes from the beginning of the program. For fiscal years 
1936 through 1940, $3,561,410 of NYA funds were expended for work 
project equipment. In fisGal year 1941, $18,713,345 of NYA funds 



120 



NATIONAL YOUTH ADMINISTRATION 



were expended to equip shops and resident projects in preparation 
for the defense and war production training programs. Farsighted 
NYA officials recognized that employment outlets for youth would be 
great in the mechanical and metal trades, aviation, radio, and elec- 
trical fields. Therefore, NYA purchased large quantities of equip- 
ment for the purpose of preparing unemployed youth for employ- 
ment in essential defense and war occupations. With improved shop 
equipment and facilities, only $4,771,148 was expended in fiscal year 
1942 for equipment purposes. In 1943, this expenditure dropped to 
$567,216, qr 1.2 percent of the total NYA expenditures for the war pro- 
duction training program for out-of-school unemployed youth. 
NYA spent in all less than 6 percent of total expenditures on the out- 
of-school work program for project equipment from fiscal year 1936 
through fiscal year 1943. 

Characteristics of Project Workers 

The National Youth Administration conducted studies of the char- 
acteristics of youth employed on the NYA out-of-school work projects 
beginning with 1940. These studies obtained information on the age 
distribution of the youth and on employment by degree of urbaniza- 
tion, sex, and race. In October 1940, a comprehensive sample study 
was made of 33,112 NYA youth project workers which revealed, in 
addition to the foregoing inf ormation, the years of schooling of NYA 
youth, reasons for leaving school, previous work experience, and ex- 
tent of private employment. 9 Subsequent studies were less extensive 
and information was secured only on the age and sex of NYA workers, 
and on employment by degree of urbanization. 

Age of Project Workers . 

In October 1940, the largest concentration of NYA workers was at 
the 19-year-age level with 26.5 percent that age. In March 1942, the 
largest concentration of NYA workers (23.4 percent) was at the 18- 
year-age level; in October 1942, the largest concentration of youth 
(28.2 percent) was at the 17-year-age level; and in April 1943, 31.1 
percent was 17 years of age. On the other hand, the 16-year-olds were 
only 4.4 percent of NYA workers in March 1942 ; 5.7 percent in Octo- 
ber 1942 ; and 23.4 percent on April 14, 1943. 

There was a marked change in the age composition of NYA project 
workers who were 21 years and over. In October 1940, 31.3 percent 
were in this age group ; in March 1942, 20.6 percent : in October 1942, 
15.3 percent; and in April 1943, 11.9 percent. 

9 Characteristics of Youth on the NYA Out-of-School Work Program, October 1940, pre- - 
' pared by the Division of Finance and Statistics, National Youth Administration, Federal 
Security Agency (mimeo.)- 



FINAL REPORT, FISCAL YEARS 1936-1943 



121 



Table 34. — Age of youth actively assigned on the NY A out-of-school work program 

by sex, for selected dates 



Apr. 14, 1943 


Oct. 14, 1942 


Mar. 28, 1942 


Sample study 
Oct. 24, 1940 


Number 


Percent 


Number 


Percent 


Number 


Percent 


Number 


Percent 


51, 576 


100.0 


53, 857 


100.0 


168, 814 


100.0 


33, 112 


100.0 


12, 052 
16, 037 
9, 763 
4, 725 
2, 825 
1, 997 
1, 454 
1,308 
1, 415 


23.4 
31.1 
18.9 
9.2 
5.5 
3.9 
2.8 
2.5 
2.7 


3, 044 
15, 165 
14, 276 

8, 257 

4, 860 
3, 023 
2, 160 
1, 583 
1, 489 


5.7 
28.2 
26.5 
15.3 
9.0 
5.6 
4.0 
2.9 
2.8 


7, 496 
31, 706 
39, 442 
32, 299 
23, 130 
14, 453 
8, 800 
6, 700 
4,788 


4.4 
18.8 
23.4 
19.1 
13.7 
8.6 
5.2 
4.0 
2.8 






1, 717 
5, 879 
8, 782 
6, 349 
4, 277 
2, 867 
1, 937 
1,304 


5.2 
17.8 
26.5 
19.2 
12.9 
8.7 
5.8 
3.9 


27, 133 

8, 446 

9, 807 
4, 590 
1, 740 

836 
528 
382 
356 
448 


100.0 
31. 1 
36.1 
16.9 
6.4 
3.1 
2.0 
1.4 
1.3 
1.7 


30, 577 
2,199 
10, 558 
8, 396 
4, 375 
2, 161 
1, 094 
729 
529 
536 


100.0 
7.2 
34.5 
27.5 
14.3 
7.1 
3.6 
2.4 
1.7 
1.7 


91, 347 

5, 304 
21, 136 
22, 555 
16, 171 
11, 087 

6, 625 
3, 626 
2, 717 
2,126 


100.0 
5.8 
23.1 
24.7 
17.7 
12.1 
7.3 
4.0 
3.0 
2.3 


18, 564 


100.0 


1, 047 
3, 270 
4,711 
3, 500 
2,424 
1, 668 
1, 160 
784 


5.6 
17.6 
25.4 
18.9 
13.1 
9.0 
6.2 
4.2 


24,443 


100.0 


23, 280 


100.0 


77, 467 


100.0 


14, 548 


100.0 


3, 606 
6,230 
5,173 
2,985 
1, 989 
1, 469 
1,072 
952 
967 


14.7 
25.5 
21.2 
12.2 
8.1 
6.0 
4.4 
3.9 
4.0 


845 
4, 607 
5, 880 
3, 882 
2, 699 
1, 929 
1,431 
1, 054 

953 


3.6 
19.8 
25.3 
16.7 
11.6 
8.3 
6.1 
4.5 
4.1 


2, 192 
10, 570 
16, 887 
16, 128 
12, 043 
7, 828 
5, 174 
3, 983 
2, 662 


2.8 
13.6 
21.8 
20.8 
15.6 
10.1 
6.7 
5.2 
,4 






670 
2, 609 
4, 071 
2,849 
1,853 
1, 199 
777 
520 


4.6 
17.9 
28.0 
19.6 
12.7 
8.3 
5.3 
3.6 



Age and sex 



All youth: 

Total 

16 years. 

17 years. 

18 years. 

19 years. 

20 years. 

21 years. 

22 years. 

23 years. 

24 years. 

Male: 

Total 

15 years. 

17 years. 

18 years. 

19 years. 

20 years. 

21 years. 

22 years. 

23 years. 

24 years. 

Female: 

Total 

16 years . 

17 years. 

18 years . 

19 years. 

20 years . 

21 years. 

22 years. 

23 years. 

24 years . 



There were variations in the concentration at a particular age level 
between the males and females. For example, in 1940, 25.4 percent of 
the NYA boys was in the 19-year-age group, and 28.0 percent of the 
girl workers. In March 1942, 24.7 percent of the boys was in the 18- 
year-old age group, and 21.8 percent of the girls. In October 1942, 
34.5 percent of the boys was IT years of age, but only 19.8 percent of 
the girls was 17 years of age ; and in April 1943, 25.5 percent of the 
girls was 17, and 21.2 percent was 18 years of age, while only 16.9 
percent of NYA boys was 18 years of age, 36.1 percent was aged 17, 
and 31.1 percent was 16 years of age. 

The age distribution of .NYA project workers showed the change 
in age composition of youth available for NYA employment. Here 
again was an illustration of the inroads made by the military services 
and the demands of industry for young people, particularly young 
men 18 years of age and over. The NYA concentrated 73.4 percent of 
its workers in the age group 16 to 18 years in 1943, while only 23.0 
percent was in this age group in 1940; 46.6 percent in March 1942; 
and 60.4 percent in October 1942. After March 1942, it became very 
difficult for the NYA to recruit youth between the ages of 18 and 25. 



122 



NATIONAL YOUTH ADMINISTRATION 



The survey conducted in October 1940 included Negro youth in the 
sampling of the 33,112 young people. At that time, Negroes were 13.1 
percent of the NYA project employment. There was very little dif- 
ference between the ages of the Negro and white project workers as 
the following table reveals. 

Table 35. — Median age of NYA youth, by race and sex, out-of -school work program 



Median age 
Race and sex : (years) 
Total 20. 



All white 20. 



Race and sex: M fi££eT 
All Negro 20.2 



Male 20.1 

Female 20. 4 



Male 20. 1 

Female 19.9 

White girls formed the youngest age group and Negro girls the 
oldest, while white and Negro boys were the same average age. 

Geographical Distribution of Youth Employment 

The NYA included in its studies analyses of the number of youth 
employed on the NYA out-of-school work program by degree of 
urbanization. The NYA was confronted with the task of providing a 
work program which suited the varying needs of the youth in different 
parts of the country. In order to set up projects to meet the needs of 
youth in the different population areas, it was necessary to take into 
consideration not only the area variations in the kinds of employment 



Table 36. — Number of youth employed by degree of urbanization for selected 
dates and periods, out-of-school work program 



Urbanization groups 



Total 

Under 2,500 

2,500-4,999 

5,000-9,999.-...-. 
10,000-24,999.... 
25,000-49,999.... 
50,000-99,999.-.- 
100,000 and over 

Total 

Under 2,500 

2,500-4,999 

5,000-9,999 

10,000-24,999.... 
25,000-49,999.... 
50,000-99,999.... 
100,000 and over 



Mar. 17, 
1943 2 



56, 652 



6, 620 
5, 282 
8, 518 
8, 105 
5, 683 
5, 795 
16, 649 



Dec. 16, 
1942 2 



January 
1942 3 



September 
1941 3 



Number 



51, 807 



6,116 
4,741 
8, 172 
7, 245 
5, 318 
6, 182 
14, 033 



214, 634 



31,472 

20, 840 
29, 747 
25, 803 

21, 200 
20, 491 
65, 081 



Percent 



283, 554 



36, 221 
26, 627 
39, 759 
34, 184 
26,999 
25, 995 
93, 769 



December 
1940 3 



311, 293 



45, 068 
29, 563 
35, 682 
40, 830 
27, 350 
26, 066 
106, 734 



100.0 


100.0 


100.0 


100.0 


100.0 


11.7 


. 11.8 


14.7 


12.8 


14.5 


9.3 


9.1 


9.7 


9.4 


9.5 


15.1 


15.8 


13.9 


14.0 


11.4 


14.3 


14.0 


12.0 


12.1 


13.1 


10.0 


10.3 


9.9 


9.5 


8.8 


10.2 


11.9 


9.5 


9.2 


8.4 


29.4 


27.1 


30.3 


33.0 


34.3 



1 Based on size of largest municipality witbin county in wbich youth are resident. 

2 Represents the number of youth under active assignment on the day of the count. 

3 Represents the number of youth appearing on pay rolls ending within the calendar month. 



FINAL REPORT, FISCAL YEARS 1936- 



1943 



123 



opportunities for youth, but the quantity and quality of education 
available, and the race and age characteristics of youth. 

Projects located in the industrial northeastern parts of the country 
drew on a youth population considerably different from that in the 
agricultural south, and different types of work experience were re- 
quired to prepare youth to take advantage of local employment op- 
portunities. The varying factors which arose between areas of 
industrial concentration and agricultural development had to be con- 
sidered by State administrators in developing work projects to meet 
youth needs in widely diversified areas. The difficulty of establishing 
work projects in agricultural areas grew out of problems of trans- 
porting youth to project sites, and the financial inability of many 
rural communities to sponsor worth-while projects. As a consequence, 
projects for rural youth were located in villages and towns where the 
local communities were in a position to sponsor and contribute funds, 
supervision, equipment, and facilities. It is interesting to observe 
that there was little variation in the percentage of youth employed 
on the out-of -school work program by degrees of urbanization between 
1940 and 1943. Youth in counties whose largest city is over 100,000 
were somewhat overrepresented on the NYA. 



Table 37. — Number of youth employed by degree of urbanization, sex and race, 
March 17, 1943, and September 1941, out-of-school work program 



Urbanization 
groups 2 


Mar. 17, 1943 • 


September 1941 3 


Total 


Sex 


Race 


Total 


Sex 


Raoe 


Male 


Female 


White 


Other 
than 
white 


Male 


Female 


White 


Other 
than 
white 


Total . 

Under 2,500 

2,500-4,999 

5,000-9,999 

10,000-24,999 

25,000-49,999 

50,000-99,999 

100,000 and over 

Total. 

Under 2,500 

2,500-4,999. 

5,000-9,999 


Number 


56, 652 


30,531 


26, 121 


45, 455 


11, 197 


283,554 156,265 


127, 289 


247, 539 


36, 015 


6, 620 
5, 282 
8,518 
8, 105 
5,683 
5, 795 
16, 649 


3, 545 
2, 804 

4, 676 
4, 420 

2, 982 

3, 326 
8, 778 


3, 075 

2, 478 
3, 842 

3, 685 
2, 701 
2, 469 
7,871 


5, 635 
4, 732 
7, 595 

6, 837 
4, 943 
5,020 

10, 693 


985 
550 
923 

1,268 
740 
775 

5,956 


36, 221 
26, 627 
39, 759 
34, 184 
26, 999 
25, 995 
93, 769 


21,812 
16, 667 
25, 065 
19, 717 
14, 390 
13, 900 
44, 714 


14, 409 
9, 960 
14, 694 
14, 467 
12, 609 
12, 095 
49, 055 


33, 053 
24, 709 
36, 415 
30, 419 
24, 453 
22, 051 
76, 439 


3, 168 

1, 918 
3, 344 
3, 765 

2, 546 

3, 944 
17, 330 


Percent 


100.0 


100.0 


100.0 


100.0 


100.0 


100.0 


100.0 


100.0 


100.0 


100.0 


11.7 
9.3 
15.1 


11.6 
9.2 
15.3 


11.8 
9.5 
14.7 
14.1 
10.3 
9.5 
30.1 


12.4 
10.4 
16.7 
15.1 
10.9 
11.0 
23. 5 


8.8 
4.9 
8.3 


12.8 
9.4 
14.0 


14.0 
10.7 
16.0 
12.6 
9.2 
8.9 
28.6 


11.3 
7.8 

11.5 

11.4 
9.9 
9.5 

38.6 


13.4 
10.0 
14.7 
12.3 
9.9 
8.9 
30.8 


8.8 
5.3 
9.3 
10.5 
7.1 
10.9 
48.1 


10,000-24,999 

25,000-49,999 

50,000-99,999 

100,000 and over 


14.3 
10.0 
10.2 
29.4 


14.5 
9.8 
10.9 
28.7 


11.3 
6.6 
6.9 

53.2 


12.1 
9.5 
9.2 

33.0 



1 Represents the number of youth under active assignment on the day of the count. 

2 Based on size of largest municipality within county in which youth are resident. 

3 Represents the number of youth appearing on pay rolls ending within the calendar month. 



124 



NATIONAL YOUTH ADMINISTRATION 



Other-than-white youth also were over-represented in counties 
whose largest city is 100,000 and over as is shown in table 37, and were 
proportionately under-represented in the other urbanization areas. 

Relatively more girls were also employed by the NYA in the large 
cities. There was a drop of 8.5 in the percentage of girls employed 
in centers of large population between September 1941 and March 
1943. In other urbanization areas the percentage increased except 
in counties with cities ranging in size from 50,000 to 99,999. 

Years of Schooling of NY A Youth 

The survey of 33,112 youth conducted in October 1940 revealed 
pertinent information concerning the years of schooling of the NYA 
project workers. The average NYA youth had completed 11.1 grades 
of school. Young women workers had gone considerably further 
in formal education than young men workers. The former averaged 
12.1 grades; the latter only 9.9. White youth had completed 1 more 
year of school than Negro youth — 11.3 as contrasted with 10.4. The 
largest number of withdrawals occurred immediately following the 
eighth and twelfth grades. Over 17 percent of the males withdrew 
after completing the eighth grade and without completing the ninth. 
Only 9 percent of the females withdrew at that grade. The with- 
drawal of both males and females was largely concentrated in the 
period following the twelfth grade. Over 52 percent of the females 
and 27 percent of the males completed the twelfth grade and did not 
go on to complete the first year of college. Considerable variation 
existed between the sexes and races in regard to college attendance. 
Over 5 percent of the females had completed 1 or more years of college 
as contrasted with but 3.4 percent of the males. 



Table 38. — Percent distribution of NYA youth by highest grade completed, by sex 
and race, out-of-school work program 







Sex 


Race 


Highest grade completed 












All youth 














Male 


Female 


White 


Negro 


Total 


100.0 


100.0 


100.0 


100.0 


100.0 


Less than 7. _ ... ..... . 


9.4 


13.0 


4.8 


8.6 


14. 1 


Seventh. ... ... .. ..... . 


7.2 


9.3 


4.6 


6 9 


9.0 


Eighth 


13.7 


17.4 


9.0 


14.2 


10.3 


Ninth ......... 


9.4 


11.0 


7.4 


9.1 


11.7 


Tenth 


9.3 


10.5 


7.7 


9.0 


11.5 


Eleventh. . 


8.7 


8.3 


9.3 


8.5 


10.5 


Twelfth 


38.2 


27.1 


52.1 


39.7 


28.0 


1 year or more college 


4.1 


3.4 


5. 1 


4.0 


4.9 


Median grade completed 


11. 1 


9.9 


12.1 


11.3 


10.4 



Although the median grade attainment of Negroes was less than 
that of whites, a greater proportion actually attended college. Nearly 
5 percent of the Negroes had completed one year of college, whereas 
only 4 percent of the white youth on NYA had gone that far. It is 



FINAL REPORT, FISCAL YEARS 1936-1943 



125 



Table 39. — Educational attainment of NYA youth, by sex and race, out-oj-school 

work program 





Proportion finishing given or higher grade 


Grade 




Sex 


Race 




All youth 
























Male 


Female 


White 


Negro 


Total 


100.0 


100.0 


100. 


100.0 


100.0 












1 year or more college. - - 


4. 1 


3.4 


5.1 


4.0 


4.9 


Twelfth 


42.3 


30.5 


57.2 


43.7 


32.9 


Eleventh. _______ . ._. .. _ __ _ ____ 


51.0 


38.8 


66.5 


52.2 


43.4 


Tenth 


60.3 


49.3 


74.2 


61.2 


54.9 


Ninth 


69.7 


60.3 


81.6 


70.3 


66.6 


Eighth 


83.4 


77.7 


90.6 


84.5 


76.9 


Seventh. . . .... ... 


90.6 


87.0 


95.2 


91.4 


85.9 















possible that selective factors were at work which led to the employ- 
ment on NYA of Negro youth who had more education than the 
average Negro youth throughout the country. Among these may be — 

1. The less educated Negro might have found it easier to obtain 
employment. Casual and very low paying jobs were available and 
acceptable to him. 

2. The less educated Negro might not have applied for NYA em- 
ployment. This could have been especially true in areas where Negro 
educational opportunities were the most restricted. 

3. In the selection from among those who applied for NYA em- 
ployment, it was possible that a tendency existed to choose the better 
educated. 

The October 1940 survey showed considerable variation among the 
regions in the median grade attained. The highest attainment was 
found in the Pacific region, with an average of 12.3 grades. The low- 
est was in the East South Central States where the average attained 
was only 8.9 grades. The three southern regions, as well as the West 
North Central, fell below the national average of 11.1 grades. 

Table 40. — Median grade attainment of NYA youth, by census region, out-of-school 

work program 

Median grade 
Region : completed 
U. S. total 11. 1 



New England 12.0 

Middle Atlantic 11.7 

East North Central 11.3 

West North Central 10. 9 



Median grade 
Region — Continued. completed 

South Alantic 9. 8 

East South Central 8.9 

West South Central 10.7 

Mountain 12. 

Pacific 12.3 



By urbanization areas, the highest median grade attainment was 
11.2 in counties whose largest city ranged between 10,000 and 25,000. 
There was little variation in the median grade attainment for other 
urbanization areas except in the rural counties where the 9.0 grade 
and 9.8 grade were the median grade attainments in counties whose 
largest city was from 2,500 to 5,000 and under 2,500, respectively. 



126 



NATIONAL YOUTH ADMINISTRATION 



Table 41. — Median grade attainment of NYA youth, by urbanization, out-of-school 

tuork program 



Counties, by population 
of largest city : 

U. S. total 



Median grade 

completed 
11. 1 



Under 2,500 9.8 

2, 500- 4, 999 9. 

5, 000- 9, 999 10. 9 



Counties, by population Median grade 
of largest city — Con. completed 

10,000-24,999 11.2 

25,000-49,999 10.9 

50, 000-99, 999 10. 5 

100, 000 and over 10. 6 



Age at Which NYA Youth Left School 

The average NYA worker left school and began his search for em- 
ployment at 17.7 years of age. Males, both white and Negro, left 
school about 7 months earlier than females. 

There was little difference between the median age at which Negro 
and white youth left school. The Negro youth on the average left 
school 1 month later than white. This difference was in the opposite 
direction to that which would have been expected since indications were 
numerous that Negro youth were seriously disadvantaged in their 
educational opportunities and consequently dropped out of school at 
an earlier age. 

Table 42. — Median age at ivhich NYA youth left school, out-of-school work 

program 



Race and sex 
Total__ 



Median age 
left school 
(years) 
17. 7 



All white 17. 7 



left school 
(years) 

Race and sex — Con. Median age 
All Negro 17. 8 




Male 17.4 

Female , 18.0 

The greatest percentage of NYA youth left school during their 
eighteenth year, when 27 percent withdrew. The two next largest 
years were 17 and 16. These three age groups — 16, 17, and 18 — in- 
cluded 70 percent of the school withdrawals. Only 15 percent left 
after their nineteenth birthday. The average NYA youth employed 
on the out-of-school program had probably finished his secondary 
education. 

Table 43. — Percent distribution of ages at which NYA youth left school, out-of- 
school work program 

Age youth left school : Percent Age youth left school— Con. Percent 



Total 100. 



Less than 13 years. 

13 

14 

15 



1. 5 
1.4 
4. 4 
7.6 



16 

17 

18 

19 and over 



18.6 
24.3 
27.0 
15.2 



FINAL REPORT, FISCAL YEARS 19 36- 



1943 



127 



Urbanization Differences Among Youth Leaving School 

The age at which NYA youth left school and entered the labor 
market was not greatly influenced by the size of the community in 
which they resided. Youth in more rural communities (counties in 
which the largest town is under 5,000 population) left about 3 months 
earlier than the median of 17.7 years, and youth in highly urbanized 
communities (counties in which there are cities of 100,000 population) 
left about a month later than the average. In all other communities 
the school-leaving age was approximately the same as that for the 
country as a whole. 

Table 44. — Median age at which NYA youth left school, by urbanization, out-of- 

school work program 



Counties, by population Median age 
of largest city: youth left school 
J (years) 
U. S. total 17. 7 



Under 2,500 17. 5 

2,500-4,999 17.4 

5,000-9,990 17. 7 



Counties, by population Median age 
of largest city-Con. youth left school 

(years) 

10,000-24,999 17.7 

25,000-49,999 17. 7 

50,000-99,999 17. 7 

100,000 and over 17.8 



Reasons for Leaving School 

Over two-fifths (45 percent) of the NYA youth gave an economic 
reason as the cause of their leaving school. Twenty-two percent had 
no funds to continue, 9 percent were needed for work at home and 
nearly 14 percent felt the} 7 ought to earn some money. 

Economic reasons were given more often by Negro youth as the 
reason for leaving school than by whites. Fifty-seven percent of the 
Negro youth gave such reasons, contrasted with 44 percent of the 
white youth. Many more boys than girls withdrew from school for 
economic reasons. The difference between the sexes in both races 
was marked. 

Over 37 percent of all NYA youth gave graduation from high 
school as the reason for their leaving school. This evidently was the 
goal toward which they were striving as only 5 percent of those who 
graduated from high school gave economic or other reasons for not 
going further. Possibly more would have liked to have gone on to 
college but could not do so for financial reasons. 

The remaining 17 percent of NYA youth gave various reasons for 
not continuing their education. Less than 10 percent left because 
they lacked interest in or had difficulty with their school work. Three 
percent were obliged to stop school because of poor health. Only 
three-tenths of 1 percent left because of "disciplinary trouble." 

Previous Work Experience of NYA Youth 

Information on the previous work experience of NYA youth was 
not known for all the cases covered in the October 1940 study. As 



128 



NATIONAL YOUTH ADMINISTRATION 



information was available for the great majority of the youth, how- 
ever, an analysis of the data available gave interesting and fairly 
reliable information on the work background of NYA youth. 

In regard to work experience, NYA youth divided themselves into 
two groups. The first group contained those who had never had 
private employment. This was the larger group, and constituted 61 
percent of the total, nearly two out of every three. The second 
group, 39 percent, was those who had had private employment at 
one time or another. 

Table 45. — Proportion of NYA youth never privately employed prior to NYA 
assignment, by present age, out-of-scbool work program 



Percent never 
Age of youth : Privately employed 
Total 61. 2 



17 years 63.0 

18 years 63.5 

19 years 61.2 



Percent never 
Age of youth : Privately employed 

20 years 58. 2 

21 years 54. 8 

22 years 50.8 

23 years 48.7 

24 years 46.9 



The older the age group the greater the proportion with some work 
experience. About 53 percent of those 24 years of age had expe- 
rienced some private employment, whereas only 37 percent of those 
aged 17 had ever been privately employed. 

The work experience of NYA youth varied markedly among the 
regions. A greater number lacked work experience in the three 
southern regions than in any of the other six regions of the United 
States. Nearly 74 percent of the youth on NYA in the East South 
Central States of Kentucky, Tennessee, Alabama, and Mississippi 
had not had the opportunity for work in private employment. The 
corresponding ratios for the South Atlantic and the West South 
Central regions were 71 and 68 percent, respectively. The regions of 
best opportunity were the New England and Mountain States, where 
only 43 and 44 percent had not had previous private employment. 

Rural counties, that is, counties which contained no city over 2,500 
population in 19'30, afforded the least employment opportunity to 
NYA youth. Nearly three-fourths, 73 percent, of the youth of these 
counties had no previous private work experience. The data pre- 
sented in the following table indicate, in fact, that the more rural the 
area the higher the proportion of youth who had never had any pri- 
vate employment. The sole exception to this tendency appeared in 
counties whose largest city is between 50,000 and 100,000. NYA 
youth in that group of counties had slightly more experience than 
those in the metropolitan countries. 

As has been pointed out, more female than male NYA youth had 
never had private employment. This relative disadvantage appeared 



FINAL REPORT, FISCAL YEARS 19 36-1943 



129 



in all the urbanization groupings. It was more apparent, however, 
in the more rural counties and less marked in the more urban. 

Table 46. — Proportion of NYA youth never privately employed prior to NYA 
assignment, by urbanization, by race and sex, out-of-school work program 



Counties by population of largest city 



Percent never privately employed 



All youth 


Males 


Females 


White 


Negro 


61.2 


55.1 


68.9 


61.4 


60.5 


72.7 


65.5 


81.1 


73.5 


62.8 


66.2 


60.5 


75.8 


66.9 


58.8 


65.3 


58.7 


74.2 


65.5 


64.4 


63.2 


57.3 


72.3 


62.9 


64.6 


57.6 


53.3 


62.4 


57.6 


57.4 


53.4 


48.4 


59.8 


53.1 


55.0 


56.6 


49.3 


64.2 


55.7 


60.0 



United States total 

Under 2,500 

2,500 to 4,999 

5,000 to 9,999 

10,000 to 24,999 

25,000 to 49,999 

50,000 to 99,999 

100,000 and over 



An urbanization pattern existed, also, relative to the employment 
experience of Negro and white NYA youth. In the rural areas the 
proportion of Negroes who had never had private employment was 
less than that of the whites. The reverse was true in the urban areas. 
There the white youth had the advantage of nongovernmental employ- 
ment opportunities. 

Special Groups of Needy Youth Employed 

The NYA employed needy youth who had physical handicaps, yet 
who were able to perform work if properly placed and supervised. 
For a period of a little over 1 year (from the fall of 1938 until 
November 1939), the NYA used its facilities to train refugee youth, 
without any expenditure of Federal funds. 

Handicapped Youth Employed on Projects 

The range of physical handicaps which afflicted many youth who 
were referred to NYA was large — defective speech, total or partial 
blindness, impaired hearing, loss or impairment of some member, 
and spinal or other disability resulting from infantile paralysis or 
physical injuries. Referrals to NYA projects were made by public 
agencies, such as State bureaus of rehabilitation, the Red Cross, Selec- 
tive Service Boards, schools, hospitals, and welfare boards. The 
National Youth Administration reported back to the referral agencies 
on types of work assignment, work performance, ability to work with 
others, work habits, and the general progress of the handicapped 
youth. 

From the beginning of the program, physically handicapped youth 
were assigned to NYA projects, carefully tested for aptitudes, coun- 
seled, and placed on suitable work in projects with physically well 



130 



NATIONAL YOUTH ADMINISTRATION 



youth. This technique was educational for both, and adjustments 
were quickly made. The handicapped youth gradually gained self- 
confidence and the normal youth learned to respect the abilities and 
work accomplishments of the crippled, the deaf, the blind, and those 
with speech impediments. 

Physically handicapped youth took part in many types of projects- 
clerical, home economics, library— and were placed in machine, radio, 
welding, drafting, aircraft, and other shops. The work was arranged 
so that materials were near at hand. Often the NYA arranged for 
medical treatment, artificial limbs, psychiatric guidance, speech cor- 
rection, and lip reading. This was done in cooperation with State 
rehabilitation bureaus, public welfare agencies and interested indi- 
viduals who contributed money and professional services. 

One resident center for physically handicapped youth deserves 
mention. The NYA State administrator in Pennsylvania, in coopera- 
tion with the Pennsylvania Bureau of Rehabilitation, established a 
resident work center at the Williamsport Technical Institute. During 
fiscal year 1943, there were 265 handicapped NYA youth assigned to 
work training here in drafting, radio assembly, aviation instrument 
repair, lens grinding, and other suitable work. Rooms at low rates 
in private residences were found for them as NYA could not construct 
dormitories for its project youth during the war period. Ninety-five 
percent of these handicapped youth found jobs in private industry. 

When the first war casualties came back home, some were assigned 
to NYA projects. Since assignments to projects of injured service- 
men occurred during the last year of operations, a sufficient length 
of time had not passed to permit valid evaluation of the extent of 
rehabilitation. Those who worked on NYA projects seemed satisfied 
with their immediate acceptance into a working group and welcomed 
the work training which would prepare them occupational^ in 
keeping with their disabilities. 

Equipment and supplies were made by NYA project workers for 
handicapped youth in schools and institutions, many of which lacked 
books and desks for children with limited vision. 

The National Youth Administration employed another group of 
socially handicapped youth during the last year of operation — parolees 
and probationers from prisons and reform schools. These boys and 
girls could not be paroled directly to the NYA, and no NYA official 
was allowed to serve as the sponsor for any boy or girl on parole. 
Parolees and probationers often were placed in resident project cen- 
ters because a change of home or local community environment was 
indicated. In these instances, other NYA youth were told nothing 
of the past histories unless the paroled youth themselves confided in 
other project youth, and they were advised not to do so by the project 



FIXAL REPORT, FISCAL YEARS 19 36-194 3 



131 



supervisor. A fresh start with supervised work experience and in- 
dividual counseling helped" many of these youth over difficult hurdles 
into gainful employment. 

Refugee Youth Employed 

In 193S, national XYA officials and advisory committee members 
met with respresentatives from the National Coordinating Committee 
for Aid to Refugees and Emigrants Coming from Germany, the 
American Committee for German Refugees, and the Committee for 
Catholic Refugees. While only a few refugee youth reached this 
country, most of them stayed in Xew York. The XYA, through its 
system of work projects, was the desirable organization to put them 
to work, to get them distributed throughout the country, and to help 
them make their adjustments with American youth — thus enabling 
them to learn the English language and customs easier and quicker. 
Very few of the refugees had any money, and in accordance with the 
legislative provisions governing expenditure of Federal funds, the 
XYA could not pay them wages for work performed or assume the 
costs of transportation and subsistence. Consequently, national 
refugee committees paid the transportation of these youth from Xew 
York to resident projects in those States willing to accept refugee 
youth — which were most of the States. Local organizations or indi- 
viduals contributed enough money to pay the XYA wages, including 
costs of subsistence, and small cash allowances for the young refugee 
men and women. These funds were easily raised by the national 
refugee committees and the National XYA Advisory Committee. 
The XYA offered the least expensive method of providing refugee 
youth with a place to live while training for jobs in private industry. 

In November 1939, the Xational Refugee Service Committee re- 
ported that a total of 85 refugee youth had been placed in XYA 
resident projects in Alabama, Georgia, Florida, Ohio. Xew Hamp- 
shire, Massachusetts, Connecticut. Rhode Island, Xew York State 
(excluding Xew York City), Missouri, and Michigan. Georgia, with 
26 refugee youth, had responded most fully. At the time of that 
report, only 61 were still employed on XYA projects. The others 
had secured jobs through the efforts of local XYA advisory commit- 
tees. Most of these unfortunate foreign young people adjusted them- 
selves well to their new environment. They all had far more educa- 
tional background than the XYA youth with whom they lived and 
worked. Practically all were Jewish, unorthodox in religion, and the 
majority of them spoke and wrote English. According to reports 
from the resident project supervisors, American youth benefited from 
their daily association with the refugees from Fascism. 



566597—44 10 



132 



NATIONAL YOUTH ADMINISTRATION 



Project Turn-over and Duration of Employment 

NYA had no fixed policy of terminating project workers, since 
terminations ran high due to the large numbers leaving for private 
employment opportunities and because of program curtailments, loss 
of eligibility, and disciplinary dismissals. 

Since the NYA was not a placement agency, a complete check on the 
reasons youth voluntarily left projects was not possible. However, 
local supervisors and youth personnel officers were able to maintain 
a moderately accurate check on the movements of project workers. A 
continuous national summary of the number of youth terminated was 
maintained by the Washington office for the fiscal years 1938 through 
1943. During this period, 2,800,183 youth were terminated from NYA 
projects. Of this number, over 42 percent was known to have left 
for public and private employment. About seven-eighths of those 
who left for other employment went to private jobs. Until 1941 
public employment outlets were principally WPA and CCC employ- 
ment. Thereafter, public employment was mainly in Government 
manufacturing establishments, such as arsenals and navy yards. 



Table 47. — Number of youth terminated from projects by reason, 1 fiscal years 
1938 through 1943, out-of-school work program 



Fiscal year 


Total 


Entered private and public 
employment 


Mili- 
tary 
service 


Other 
personal 
reasons 

54, 063 
85, 372 
97, 192 
130, 667 
259, 705 


Adminis- 
: trative 
actions 


Total 


Private 2 


Public 


1938 


156, 849 
253, 807 
379. 040 
736, 658 
935, 318 


63, 201 
92, 540 
125, 003 
357, 820 
370, 786 


47, 980 
73, 299 
100, 637 
324, 777 
341, 567 


15, 221 
19, 241 
24. 366 
33, 043 
29. 219 




39, 585 
75, 895 
156, 845 
233, 043 
289, 484 


1939 




1940 




1941 

1942 combined programs. . 

Regular program.. 

Defense program 

1943 (July 1942 through May 1943) 3. 

Total (July 1937 through 
May 1943) 


15, 128 
15, 343 


597, 604 

337, 714 

338, 511 


198. 353 
172, 433 

179, 056 


ISO. 401 
161, 166 

(*) 


17, 952 
11.267 

« 


5, 562 
9, 781 

19, 831 


140, 822 
118, 883 

115, 935 


252, 867 
36, 617 

23, 689 


2,800,183 1,188,406 


888. 260 


121, 090 


50, 302 


742, 934 


818, 541 



1 Total terminations include NYA youth who were terminated more than once as a result of reassignment 
to projects. 

2 Includes an estimated number of youth who left for unknown reasons. 

3 June 1943 not available. 

* Data not reported separately after July 1, 1942. 



For the fiscal years 1938, 1939. and 1940 slightly over one-fifth of 
the estimated different youth employed during those years volun- 
tarily left and were known to have received private and public em- 
ployment. The placements known to NYA officials during the fiscal 
year 1941 were 36.7 percent of the total number of different youth em- 
ployed on work projects during that year. This percentage increased 
to 41.2 percent for fiscal year 1942 and 48.8 percent for the first 11 
months of fiscal year 1943. During the entire 6 years, a large number 
of youth who left voluntarily and were classified under other personal 
reasons undoubtedly obtained private employment. 



FINAL REPORT, FISCAL YEARS 1936-194 3 



133 



A total of 50,302 left NYA projects for the military services from 
1941 through 1943. 

There were 742,934 (26.5 percent) who were known to have left 
for personal reasons such as illness, moving to another locality, mar- 
riage, return to school, etc. 

A total of 818,541 (29.2 percent) were terminated by administrative 
action such as loss of eligibility, disciplinary reasons, tenure, curtail- 
ment of projects, and completion or discontinuance of projects. 

An analysis of types of manufacturing and nonmanufacturing em- 
ployment NYA youth accepted was made for the last three fiscal years 
(1941 through 1943). 10 During the fiscal years 1941 and 1942, more 
youth took employment in nonmanufacturing industries than in manu- 
facturing industries — 117,000 as contrasted with 83,000 in 1941, and 
113,000 as contrasted with 101,000 in 1942. In the fiscal year 1943, the 
number of youth who entered manufacturing industries was two and 
two-thirds times the number who went into nonmanufacturing indus- 
tries— 96,000 in contrast to 36,000. 

Youth employed on the out-of -school work program had always 
been required under NYA regulations to accept bona fide offers of em- 
ployment. To encourage them to accept private jobs which may have 
been of a temporary or seasonal nature, especially before the war 
period, the NYA assured them of reassignment to their project work 
upon conclusion of the private job. Youth who were involuntarily 
separated because of program curtailment or conclusion of individual 
projects also could be reassigned to the program. 

Two studies were made of the duration of NYA employment of 
youth terminated from the youth work defense program in May 1942 
and from the war production training program in J anuary 1943. The 
May 1942 analysis of 28,255 NYA youth who had been terminated 
during that month showed that 37.7 percent had been on the program 
30 days or less, 58.8 percent 60 days or less, 74.4 percent 90 clays or less, 
and 84.1 percent 120 days or less. The other 15.9 percent had been 
employed on the NYA from 120 to 345 days, although only 1 percent 
had been employed more than 300 days. 

The analysis made in January 1943 of 25,928 youth who were termi- 
nated during that month showed that 43.7 percent had been on the 
NYA war production training projects 30 days or less, 66.2 percent 
60 days or less, 83.1 percent 90 days or less, and 92.5 percent 120 days 
or less. The remaining 7.5 percent had been employed by the NYA 
over 120 days, although only 0.8 percent had been employed more 
than 242 days. 



10 See appendix B, tables 13, 14, and 15 for number of youth who left the NYA out-of- 
school work program to accept jobs in private industry and public agencies, by sex and by 
type of industry or employment. 



• VI - 

Out-of-School Work Program: Nonresident 

Projects 

Nonresident projects were those operated in local communities 
throughout the country with local public and quasi-public agencies 
acting as cosponsors. They were planned and initiated for eligible 
unemployed youth residing in these localities. Nonresident projects 
provided work experience to youth of these communities and at the 
same time produced useful goods and services for the benefit of the 
communities. The project activities were related to the local em- 
ployment outlets for youth. 

There were two broad general classifications of nonresident work 
projects — manual and nonmanual. This chapter presents descriptions 
of those types of work projects on which local youth were employed, 
but does not attempt to go into details of internal project organization, 
statistical analyses, hours and earnings, or project costs. 

Manual Projects 1 

Manual projects employing out-of-school youth consisted of con- 
struction, conservation, sewing and all types of workshops. On these 
work activities, youth learned to use their hands, to build, to remodel 
and repair, to make clothes and household articles, to operate machines, 
to make products from metals, and to overhaul and repair motors. 
The following project descriptions do not include all the production 
work youth did to gain work experience, but they do reveal the diversi- 
fication of the work activities and give examples of physical accom- 
plishments. 

Construction Projects 

"Construction projects" is a broad classification which includes 
widely varied types of work activities, from ditching in order to im- 
prove drainage to the construction of court houses, schools, and air- 
ports. As was true with all types of work projects, undertakings were 
in cooperation with local agencies. Besides State and local govern- 
mental agencies, local cosponsors could be nonprofit organizations 
which would assume responsibility for furnishing construction 

1 See appendix B, table 18 for percentage distribution of youth employed on the out-of- 
school work program by sex and type of projects for fiscal years 1940 and 1941 ; and 
tables 19 and 20, by sex and type of work activity for fiscal years 1942 and 1943. 



135 



136 



NATIONAL YOUTH ADMINISTRATION 



material, some supervision of the work, and maintenance of the project 
after its completion. 

Types of construction projects included recreation centers, either 
new buildings or additions to existing ones ; renovation and expansion 
of museums ; wayside bus stations ; sanitary privies for rural schools ; 
repair and building of rural schools; picnic camp shelters; outdoor 
theaters and bleachers ; bathhouses ; swimming pools and diving tow- 
ers ; stone or concrete bridges in parks ; upstream conservation dams ; 
roadside picnic parks, with tables for picnickers ; recreation equipment. 

This diversified type of construction work readily found local sup- 
port in most communities. The construction program soon became 
nation-wide after it was determined a major project activity early in 
the program. 

The general classification of construction projects included the 
following : 

1. Recreational structures and facilities such as bandstands, shower 
and dressing rooms, bleachers for gymnasiums and athletic fields, 
tennis courts, swimming pools, park and playground wading pools, 
public golf courses, park development, etc. 

2. Road and street work. 

3. Airport and airway work, such as landing fields, hangars, 
markers, etc. 

4. Conservation activities, such as levees, retaining walls, rip- 
rapping dams and river banks, irrigation and drainage, fire breaks, 
and observation towers. 

5. Public utilities such as drinking fountains, fire hydrants, and 
other phases of water supply; sewage and sanitation; electrical 
facilities. 

Construction projects at first were simple. Cosponsors were not 
convinced that unskilled youth could build or repair sufficiently well 
to justify expenditures for materials. In one West Virginia town, 
youth sold bonds to buy materials to build a fence around a school 
athletic field, and planned to retire the bonds with admission receipts 
from the athletic games. Thousands of youth constructed recrea- 
tional equipment, such as stone fireplaces, benches and tables, play- 
ground equipment, and wading pools. 

Roads were constructed and repaired, although work on concrete 
highways was not frequent, since WPA was engaged in this type of 
highway construction, which might demand hundreds of men in one 
location and heavier and more costly equipment than many NYA 
cosponsors could furnish. 

In the early NYA days, many rural schools were repaired. Some 
in Kentucky, for example, had never been painted. There were no 
playgrounds and the rough, precipitous hills were hazardous for small 



FINAL REPORT, FISCAL YEARS 1936-1943 



137 



children. In county after county, NYA youth painted school houses, 
graded the yards by hand, and filled in crevices. As NYA youth dem- 
onstrated that their construction work was acceptable, they were given 
larger public jobs. 

Examples of construction work done by youth are as follows : 

In April 1938, West Virginia reported the following school con- 
struction program : At San Ford, youth constructed a 24- by 32-foot 
bus garage with a classroom over it, using weatherboarcling on the 
outside and poplar ceiling and hardwood floors inside. At Hanner, a 
22- by 32-foot concrete block garage-classroom was built, and lumber 
salvaged from a demolished schoolhouse was used for the interior. 
At Tanners' Fork of Steer Creek, NYA youth graded a playground 
and moved a 1-room schoolhouse 350 feet and put it on a new founda- 
tion. At this same village, they also demolished and moved a 1-room 
school 5 miles and rebuilt it so that two 1-room schools were available 
for a larger number of pupils. At Upper Cedar Creek, NYA graded 
a school ground and built a 1-room building ; at Cedar Creek, a 1-room 
school building was demolished and moved 3 miles and rebuilt; at 
Warclensville, NYA boys built a 10-room high school, in 2 sections, 
on ground purchased by the local women's club and deeded to the 
board of education; at Moorefield, Frost, Elkins, Walton, Laneville, 
St. George, Douglas, Mathias, Kig, and in a rural spot near Moore- 
field, small schoolhouses were built. At Peterson, NYA workers 
built a 2 -room unit for the high school, with cloak rooms, and a base- 
ment with dressing rooms, toilets, and showers, and a heating unit. 
Near Bowden, the department of public assistance furnished materials 
for a county health camp which NYA built. In 1937 a cloudburst 
washed the school on Route 1 at Waver ly oif the foundation and car- 
ried it 1 mile downstream; there NYA finished demolishing it, sal- 
vaged usable materials, and carried them back to the original site 
where the school was rebuilt. 

Florida carried on an extensive building program, including the 
construction of Negro school units, vocational schools and shops. 
From 1936 to 1942, NYA built 46 home economics, trades and indus- 
trial, and other shop units. Twenty-seven were of stone, 14 of brick, 
3 of concrete and 2 of frame. 

Youth also repaired libraries, hospitals, and other public buildings. 
During the fiscal year 1939, NYA youth built, repaired, or enlarged 
277 hospitals and medical buildings. In several towns, they built 
courthouses and city halls. Bridge construction and bridge repair 
were usual projects. Many dams and ripraps also were built. 

In 1937, NYA requested the WPA Engineering Division to make a 
careful and thorough survey of 108 construction projects. In general, 
the findings were favorable. The construction program as a whole 



138 



NATIONAL YOUTH ADMINISTRATION 



was rated "very good." Most of the projects were of value to the 
public, and there were adequate guarantees of maintenance after 
completion. Some of the economies practiced were criticized, and 
there was occasional inappropriate use of materials. The educa- 
tional value of the projects was rated "good." The surveyors deplored 
those projects which limited the youth to simple manual operations 
and which did not stimulate the youth to good work performances. 
Improvements in social attitudes among the } 7 oung people were noted. 
Little correlation of jobs with supplementary school work or special 
training was found. Most youth benefited from work discipline. 
There was little evidence that the projects displaced adult workers 
or increased the supply of local nonrelief labor. In several instances, 
the lack of support of organized labor was reported. The health and 
safety of the youth were well guarded. Projects were operated in 
an orderly fashion and equipment was properly handled and cared for. 

Projects involving the expenditure of $5,000 or more for materials 
had to be approved by the national office. State administrators were 
encouraged to send all building plans to Washington, where an archi- 
tect and his assistant checked general utility, materials, and design. 
Many NYA State offices employed architects; and cosponsors fre- 
quently contributed the services of architects. General design im- 
proved progressively. 

Specific undertakings of larger dimensions existed in certain locali- 
ties. An example is the ski jump tower at Berlin, N. H. This project 
was completed in February 1939 and was cosponsored by the city of 
Berlin and the Nanse Ski Club, with the cooperation of the New 
Hampshire State Legislature. The city furnished the necessary ma- 
terials; the ski club provided technical plans and supervision of the 
construction work; and NYA youth performed the labor. The num- 
ber of youth employed on the project varied from 50 at its beginning 
to 144 on the date of its completion. The main steel tower is 171 
feet in height from the ground surface and supports a wooden runway 
310 feet in length. Below the structural slide, NYA youth cleared 
an acre of heavily wooded area for the landing field, terraced space 
suitable for spectators, graded the hillside, constructed a mile of 
roadway leading to the foot of the jump, and built log cabins and 
tool sheds. 

Demolition work undertaken by NYA was subject to prescribed 
regulations. Such work could be performed only under circum- 
stances which insured safety to NYA workers. Projects providing 
for demolition work on buildings over one story in height could not 
be undertaken until the site had been inspected by a properly author- 
ized safety inspector and a written approval obtained. 

In 1941, NYA youth were assigned to production work for the Civil 
Aeronautics Administration to construct and improve flying fields, 



FINAL REPORT, FISCAL YEARS 1936-194 3 



139 



hangars, and airport equipment. Prior to this time, many youth had 
worked on public airports. In 1939, NYA youth started to build a 
transcontinental chain of seaplane bases extending from Maine to 
Key West, and along the Gulf of Mexico to Louisiana. Other net- 
works of bases were established up the Pacific coast, in the Mississippi 
Valley, and in the Great Lakes region. These bases usually consisted 
of docks and pontoons. 

Individual projects were usually small, but each separate unit was 
a response to a local need as conceived through community planning 
by responsible persons. The construction of a safety fence around 
a park or playground, or the building of a wading pool, lacks the 
spectacular effect of a ski slide, but their relative value to the com- 
munity is just as significant. Following are major construction items 
of physical accomplishment which exist throughout the country and 
demonstrate the extent to which NYA youth added to community 
facilities. 2 



Item of accomplishment 1 


Work completed 


New con- 
struction or 
additions 


Reconstruc- 
tion or im- 
provement 


Public buildings 

All buildings— Total 


9, 554 


25, 626 


Administrative and office buildings 


257 
3, 710 


1, 271 
17, 930 


Educational buildings— Total-. .. . 


Schools -.- 


1, 279 
59 

1, 376 
129 
867 


15, 900 
362 
198 
21 
1,449 


Libraries .. . 


Vocational farm shops . 


Other vocational buildings 


Educational buildings 


Charitable, medical, and mental buildings— Total 


167 


672 


Hospitals and infirmaries 


33 
50 
84 


268 
94 
310 


Out-patient medical buildings . . 


Charitable, medical, and mental buildings 


Social and recreational buildings— Total 


1, 171 


2, 020 


Auditoriums 


44 
183 
305 
639 


243 
562 
491 
724 


Gymnasiums .. 


Youth center buildings. . .. _ 


Social and recreational buildings ... 


Community service buildings— Total.. 


1, 052 


1, 461 


Canneries, markets, and exhibition buildings 2 


62 
990 


129 
1,332 


Community service buildings 


Other public buildings— Total 


735 


715 


Armories and other military buildings 2 


108 
627 


200 
515 


Other public buildings . 


NYA buildings— Total . "1 


2,462 


1, 557 


Resident center buildings... 


1, 857 
605 
1,728 
123, 723 


1, 206 
351 


Nonresident NYA buildings . . . . „ 


Demolition of buildings (number demolished) 2... ........ . 


Improvement of grounds around public buildings (acres improved).. 





See footnotes at end of table. 



2 Items of physical accomplishment were reported for the fiscal years 1937 through 1942 
unless otherwise indicated by the appropriate footnote. Data excludes Connecticut, Dis- 
trict of Columbia, Utah, and Wyoming for the fiscal year 1942. 



140 



NATIONAL YOUTH ADMINISTRATION 



Item of accomplishment 



Work completed 



New con- , Reconstruc- 
struction or j tion or im- 
additions 1 provement 



Recreational structures and facilities 

Recreational structures: 

Bandstands, bandshells, and outdoor theaters 

Shower and dressing room structures 

Bleachers, grandstands, and stadiums 

Information booths, roadside and park shelters 

Lifeguard towers 2 

Recreational areas and facilities 

Athletic fields r. 

Tennis courts 

Other athletic courts 

Swimming and wading pools 

Archery and gun ranges 

Playgrounds 

Ice and roller skating areas 2 

Golf courses __. 

Roadside parks 2 

Other parks 2 (acres) - 

Furniture installed in park areas 

Hiking, ski trails, slalom courses; bridle and bicycle paths (miles) 
Other recreational structures and facilities 3 

Road and street work 

Highways, roads, streets, and alleys (miles) 

Bridges and viaducts 

Culverts 

Curbs, gutters, and guardrails (miles) 

Sidewalks (miles) 

Parking areas and overlooks (number) 2 

Parking areas and overlooks (square yards) 4 

Roadside landscaping and beautification (miles) 

Street signs and markers placed 

Traffic lines and zones painted (miles) 

Other items of road and street work (number) 3 

Airport and airway work 

Landing fields 

Seaplane landing locations 5 

Seaplane landing facilities s 

Aircraft hangars 2 . 

Other airport buildings 

Airport and airway markers placed 

Public utilities 

Water supply: 

Drinking fountains 2 ' 

Fire hydrants 2 . 

Sprinkler systems (miles) 2 

Storage and power dams 2 

Storage tanks, cisterns, and reservoirs 

Water mains (miles) 2 

Wells 2 

Sewage and sanitation: 

Cesspools, septic tanks, and sanitary privies 

Garbage arid trash incinerator plants 2 

Pumping stations 2 

Sewage treatment plants 2 

Storm and sanitary sewers (miles) 



276 
1, 502 

1, 610 

2, 728 
101 



3, 189 
3, 907 
5, 743 
407 
116 
4 333 
229 
88 
281 
61, 428 
70. 387 
250.3 
35 



3, 201.5 
8, 131 

164. 747 
872.4 
657.2 
7, 017 

751, 885 
12, 380. 2 
1, 139, 546 

1, 559. 5 
1, 567 



123 


20 


31 


22 
86 


49 
2, 623 




613 


297 


957 


3,040 


11.8 


1. 03 


3 


3 


551 


487 


74.6 


8.2 


1,262 


132 


13,314 


673 


765 


16 


27 


17 


424 


34 


250.9 


51.6 



1 Unit of measurement is number of items unless otherwise specified. 

2 For the fiscal years 1941 and 1942. 

3 For the fiscal year 1942 only. 

4 Cumulative through June 30, 1940. 

s For the fiscal years 1940, 1941, and 1942. 

Cosponsoring agencies were State, county, and city governmental 
agencies and departments; State and local departments of education; 
charitable and medical institutions; hospitals; recreational agencies; 
Navy Department: War Department; State and local agricultural 
departments; museums; and civic organizations. 



FINAL REPORT, FISCAL YEARS 1936-1943 



141 



Conservation Projects 

National and State officials in State departments of conservation 
had utilized the assistance of boys in CCC camps and were not slow 
in voicing their interests in the NYA out-of -school work program. 
At the Upstream Engineering Conference held in Washington, D. C, 
September 22-24, 1936, the national administrator agreed to cooperate 
with this group and shortly thereafter notified State NYA directors 
to confer with local conservation representatives. 

Local and State cosponsors proposed such activities as fire pre- 
vention; destruction of grasshoppers, gophers, crows, rodents, etc.; 
propagation and planting of fingerling fish in lakes, streams, and 
aquaria; conservation and propagation of other wild life including 
game birds, deer, etc. ; soil conservation demonstration and watershed 
projects in camp areas; nurseries and research projects; prevention of 
erosion and control of surface run-offs on State highway right-of- 
ways by the construction of check dams, aprons, and retards ; irriga- 
tion and flood control in parks, roadsides, etc.; checks on flow data 
of small streams which are tributaries to main drainage systems; 
demonstrations in the prevention of forest fires and waste of forests 
by bad timbering methods; reforestation for beautification of parks, 
roadsides and public building grounds, or for conservation and ero- 
sion protection. 

The large construction program in connection with parks and rec- 
reational areas is not included in this section. Much of the timber 
which youth cut for drainage on conservation projects was used as 
material for park benches, tables, and other recreation equipment. 
NYA youth also erected and repaired buildings for the National Park 
Service, a work activity which was classed under construction rather 
than conservation. 

A large NYA conservation project was carried on at the Muskingum 
resident center in Ohio, which opened in December 1937 with 115 youth 
employed. In 1938 the center was enlarged so that 400 youth from 
surrounding States might work in this Schoenbrunn State Park. At 
first the youth lived in an abandoned CCC camp. With the timber 
they cleared from the reservoir area, they constructed cabins, a mess 
hall, a recreation building, and other needed structures. The work 
included tree planting, timber clearance, grading to prevent soil ero- 
sion, and general flood control. The Muskingum Watershed Conserv- 
ancy District cosponsored this project and provided some of the 
technical supervision. Related training included forestry, auto 
mechanics, construction practices, and shop work. 

In Texas, NYA youth ran terracing lines on a half million acres of 
land. Kansas youth ran contour lines to prevent soil erosion and 
preserve moisture in drought years. 



142 



NATIONAL YOUTH ADMINISTRATION 



Types of work done by NYA youth during such flood emergencies as 
the Ohio Kiver flood in 1937 included rescue of families and stock from 
flood waters; evacuation of families from endanged areas; making 
and distributing clothing, hospital garments, and bedding for flood 
refugees ; cooking, preparing, serving, and distributing food to refugees 
in emergency food stations; assisting in emergency health stations, 
clinics, and hospitals ; assisting Red Cross, county and city health and 
welfare departments, and other agencies in clerical work; providing 
messenger service to community agencies engaged in relief work; rec- 
reational work in refugee centers; repairing cars and boats used in 
flood relief; taking charge of registration in health clinics and com- 
missaries; making boats; cleaning city streets and public buildings; 
repairing public records and public library books damaged by floods ; 
transporting food, fuel, and clothing for refugees; cleaning and 
sterilizing quarters used by the Red Cross and the refugees ; construct- 
ing temporary offices, walks, roads, bridges; constructing and equip- 
ping refugee centers ; assisting in cleaning and repairing water mains 
and emergency telephone lines. 

Major physical accomplishments of conservation projects are as 
follows : 3 



Item of accomplishment 


Work completed 


New construc- 
tion or 
additions 


Reconstruction 
or improve- 
ment 


Conservation activities 

Soil and erosion control: 

Levees and embankments . _ miles . 


141.7 
33.4 
103, 429 


41.6 
3.3 
11, 678 
1, 469. 3 
733 
943 


Retaining walls 1 _ ... do.l__ 

Riprap 1 .. . .. ... . . ...square yards 

Riverbank, shore, and stream bed improvement . miles.. 


Drainage and irrigation ditches, canals, channels, and pipes. _. do 

Dams (exclusive storage and power dams) _ . ... 


265 
17, 375 
295, 116 

17, 389 
5, 822 
6,063 
355, 487 
50, 990 
160, 859, 076 

2, 575. 4 
185 
42, 999 
139, 628 
2, 354 
18, 966, 523 

29, 101 
72, 771 
12, 922 


Soil erosion control. . .. . . .... ...acres.. 


Propagation of wildlife: 

Bird and game sanctuaries 2 . ... ... .do.. . 

Bird and game sanctuaries 3 .... . . . . .. .number.. 

Bird and game shelter and feeding structures 1 .. . 


30, 662 
254 
1,310 


Stocking, bird and game ..... ......... . . 


Fish hatcheries ... ...... __ . ... . .. _ 


218 


Stocking, fingerling fish 2 .. . . ... . . . _ . 


Forest conservation: 

Firebreaks and firetrails. ._ . ... .. ... ... .... ..miles.. 

Fire observation structures . . .... _ ... ... . 


652.4 
836 
8, 076 
5,757 
341, 800 


Clearing and grubbing ' . ... . ... ...acres.. 

Tree and plant nurseries 2 ... ....... _. do 

Tree and plant nurseries 3 . .number. 

Trees and shrubs planted.. .. .. ... . ... 


Eradication of pests 1 

Noxious plant eradication .. ...acres. 




Insect pest eradication ... ._ __ .do.- 




Noxious animal eradication . .. 




Other conservation facilities 4 . . . 











1 For the fiscal years 1941 and 1942. 

2 For the fiscal years 1940, 1941, and 1942. 
* Cumulative through June 30, 1939. 

4 For the fiscal year 1942 only. 



3 Items of physical accomplishment were reported for the fiscal years 1937 through 1942 
nnlss otherwise indicated by the appropriate footnote. Data excludes Connecticut, Dis- 
trict of Columbia, Utah, and Wyoming for the fiscal year 1942. 



/ 



FINAL REPORT, FISCAL YEARS 19 36-1943 



143 



The educational aspects of conservation and reclamation projects 
gave youth a vision of national interests, less likely to occur in other 
types of work activities. Technical specialists usually were in charge 
of projects and through them the youth workers came into contact with 
the best known practices, whether they involved the preparation of 
nursery beds for sprouting seedlings for reforestation or the "strip- 
ping" of spawn from female trout to be hatched and cultured into 
baby fish for restocking purposes. Likewise, the construction and 
manipulation of turtle traps was learned as a means of lessening the 
destruction of fish eggs in natural spawning beds and the loss of baby 
water fowl on lakes and rivers. Through such experiences, youth 
workers not only acquired a mechanical skill but also gained a knowl- 
edge of the importance to the nation of the work in which they were 
engaged. 

Numerous smaller work activities were continuously in operation on 
conservation projects, such as running telephone lines for fire tower- 
men, emergency fire fighting, construction of area warehouses, develop- 
ment of scenic views or other sites of unusual public interest, and tak- 
ing wild game censuses. 

Private or public jobs in conservation were not open to many NYA 
youth. When the related training on conservation projects included 
mechanical shop work, blueprint reading, and other aids to construc- 
tion, workers' employability was greatly increased. Only in a few 
States was extensive related training available to supplement con- 
servation project work. 

Typical cosponsors were soil conservation services, State highway 
departments, State park departments, State forestry departments, 
United States Weather Bureau, State planning boards, State water 
commissioners, United States Forest Service, National Park Service, 
United States Public Health Service, United States Bureau of Eec- 
lamation, United States Geological Survey, United States Bureau 
of Fisheries. 

Sewing Projects 

Throughout the NYA program, sewing was an important project 
work for girls. It ranged from sewing scrap material by hand to 
power sewing of heavy materials which led directly into defense and 
war employment. When projects were equipped so that every girl 
had a treadle machine to use, which was accomplished by the end of 
1937 in most States, much progress was thought to have been made. 
An example of such an early project was at Ranger, Tex., where 42 
girls made articles for resident centers, such as bedspreads, curtains, 
and slip covers. The girls also made uniforms and learned to knit, 
embroider, and crochet. 

In Milwaukee, Wis., several hundred girls made and repaired 



144 



NATIONAL YOUTH ADMINISTRATION 



clothes for orphanages and city welfare groups. This shop was or- 
ganized in a workmanlike manner, with forewomen, timekeepers, and 
inspectors, and production standards were maintained. 

Some of the largest sewing orders for projects in all States came 
from hospitals for which girls made all types of medical and surgical 
supplies, and uniforms for doctors, nurses, and domestic employees. 
The Washington office permitted uniforms and work clothes to be 
made for NYA youth. Many youth arrived in machine shops, auto- 
motive repair shops, and woodworking shops in clothes neither safe 
nor adapted for the type of work they were doing. This manufacture 
of NYA work clothes never became a general practice. 

In Louisiana, where homecrafts were stressed, girls on sewing proj- 
ects had to take 3 hours a week of related training without pay, which 
included clothing construction, selection of personal clothing require- 
ments, and social etiquette. Thousands of girls took Red Cross courses 
in first aid and home care of the sick. Technical information for small 
sewing projects was issued regularly from Washington. 

There was some question as to how valuable hand and treadle sewing 
projects were to those girls who wished to learn industrial sewing. 
Certainly some aptitudes were verified. It became a regular practice 
to graduate youth from machine to power sewing projects. When the 
war program advanced, power machine operators were in great de- 
mand for making uniforms and military equipment. Also youth who 
had received experience in operating one type of power machine could 
learn to operate others quickly. 

In December 1941, equipment requirements for defense industrial 
sewing projects were issued and a project had to have a minimum of 
30 industrial sewing machines. The shop was required to be equipped 
with single needle plain stitchers ranging from slow to fast speeds 
and had to have in addition such machines as necessary to make a 
balanced unit to fabricate articles from both light and medium heavy 
materials. Shops equipped to perform heavier types of work were 
preferred. Adequate auxiliary equipment was to be provided, in- 
cluding electric cutters, pressing equipment, and hand irons. Each 
shop had to have storage space, tables, and other physical equipment 
conducive to volume output. The shop supervisor must have had 
several years' experience as production manager in a section workshop, 
a good knowledge of pattern making, the knowledge and ability to 
instruct in the best methods of operation, and a knowledge of produc- 
tion records and how to keep them. 

Shop supervisors were also charged with organizing and teaching 
related training courses. The Washington office suggested the follow- 
ing types of related training : operations such as facings, plackets, 
collar setting required by industry but possibly not included in the 
execution of NYA orders ; operation of machines not used on NYA 



FINAL REPORT, FISCAL YEARS 19 36-1943 



145 



projects (industry would have to grant use of machines) ; use of 
machine attachments; making of specific sample articles such as 
parachutes, tents, sleeping bags, and uniforms made by local indus- 
try but for which NYA had no orders; care of machines and other 
equipment; pattern drafting; safety practices; job possibilities; em- 
ployer-employee relations ; trade practices and trade terms ; labor leg- 
islation such as wages and hours; special laws for women, social 
security, and labor standards. 

The work of industrial sewing projects flowed as follows, with 
youth employed in every operation and process : checking and storage 
of incoming material: cutting department; assorting and marking; 
cut garment storage; routing of garments to machines; working on 
individual parts, joining or assembly of articles; work on special 
machines: incomplete bundles storage (for each shift of workers); 
hand finishing; inspection and cleaning; pressing; double-check in- 
spection ; finished garment storage ; and packing. Workers rotated in 
all the above operations, and records of their performances were kept. 
Only qualified youth were recommended for skilled work in industry. 

At San Antonio, Tex., 106 youth were assigned to a power sewing 
project in August 1941. All had been given manual and machine 
dexterity tests by the Texas State Employment Service. Eighteen 
were terminated from the project as a result of the tests, and new 
youth to be assigned had to attain marks of fair or good. Youth 
worked in 2 shifts, from 7 a. m. to 12 noon and from 3 : 30 p. m. until 
9 p. m. The work stations were at electric cutters, plain stitchers, bar 
tack machines, flat felling machines, embroidery machines, button sew- 
ing and buttonhole machines, sergers, and steam pressers. Bdth shifts 
met daily from 12 : 30 to 3 : 30 p. m. for related training from instruc- 
tors furnished by the State Department of Education. Owing to the 
large turn-over of workers to private industry, production was low 
and consisted of these articles for 1 month from both shifts: 1,000 
pairs of coveralls, 1,200 shirts, 1,400 pairs of pants, 50,000 sheets, 
85,000 pillow cases; 10,000 mattress covers, and 1,600 cooks' uniforms 
(trousers, jackets, aprons, caps). 

While the great majority of trainees were girls, some boys, espe- 
cially in large garment centers like New York or Chicago were as- 
signed to power sewing. Negro youth were also assigned. The gar- 
ment workers unions cooperated, and youth automatically matricu- 
lated in the union when they applied for private employment. There 
was some anxiety on the part of the unions that workers would be 
trained for areas where wages were below standard, such as in the 
South and the Mountain areas, but NYA kept the union officials in- 
formed about the establishment of projects and union representatives 
had access to project youth. 



146 



NATIONAL YOUTH ADMINISTRATION 



A partial list of articles produced on sewing projects for the fiscal 
years 1937 through 1942 is as follows : 



Workshops 

NYA did not develop workshop projects as an organized program 
until fiscal year 1938. The first procedures did not even suggest shop 
activities as a possible work activity for youth. 4 Although hand car- 
pentry and other simple types of shop work were carried on, they 
were incidental to other project work. In 1937, worshops were listed 
under miscellaneous projects and included handicrafts, toymaking 
and repair, furniture construction or repair. 5 

The youth who worked on NYA had received little or no manual 
training in school or in their homes. Many youth were totally un- 
familiar with the use of simple hand tools. The workshop program 
developed slowly, probably because other types of projects such as 
minor construction, sewing, and clerical projects were more appealing 
to cosponsors, and materials and equipment for these latter types of 
work activities were cheaper and more available in all communities. 

Many vocational schools and high schools had space and equipment 
unused for parts of the working day and on Saturdays, but few of 
these were made available for NYA shop projects. 

Not many girls evidenced any interest in woodworking or other 
shopwork, and there was almost no opportunity for them when NYA 
shop projects were started. Private employment opportunities for 
girls in this field were practically nonexistent. This resulted in the 
development of homemaking, clerical, hospital, and other institutional 
assistance projects for girls. 

Even after shops were well organized, representatives of the 
Washington NYA office had to sell many State administrators on the 
inclusion of girls in shop projects. They were supposed to be "dis- 
tracting,*' to wear clothing and shoes which made the work hazardous, 
to be more interested in home economics. Negro youth with their 
fine traditions of manual dexterity, were accepted in shop projects, 
with segregated shops or shifts predominating in the South. 

All along there was opposition in many localities from organized 
]abor which did not want the brief experience, for example in a wood- 

' 4 NYA Bulletin No. 4, Procedure for Development and Operation of NTA-Sponsored Fed- 
eral Projects, January 3, 1936. 



Sewing and mattressmaking products : 

Garments — 

Household articles, bedding, etc 

Hospital supplies 

Flags 

Other sewing articles, fiscal years 1941 and 1942 only. 



Number produced 



11, 285, 514 
4, 632, 815 
30, 778, 359 



144, 781 
1, 808, 004 




FINAL REPORT, FISCAL YEARS 1936-194 3 



147 



working shop, to convince a boy that he was ready to be a carpenter's 
helper. Although union members were most frequently hired as 
supervisors, few local unions during this early period of the program 
accepted membership applications from NYA youth. 

In the fiscal year 1941, when NYA embarked on an extensive pro- 
gram of defense work, the national office made a limited survey of 
shops then in operation to determine what improvements were needed 
to give maximum training to youth and to produce needed supplies 
for the Army, Navy, , Maritime Commission, and other defense 
agencies. State administrators were requested to send in data con- 
cerning equipment, space, facilities, and adequacy of supervision. 
The shops were then rated good, medium, or not acceptable without 
additional equipment {A, B, or C). The survey showed that rela- 
tively few shops were adequately equipped for production under the 
defense program. Out of a total of 1,509 shops, included in the sur- 
vey, only 73 were rated as class A shops, 444 as class Z?, and 992 (66 
percent) were not acceptable for defense production work without 
additional equipment and general shop improvement, 

In eliminating inadequately equipped shops in 1941, NYA sent 
out suggestions concerning an improvement in the levels of efficiency. 
Buildings were required to afford adequate working space, safe work- 
ing conditions, and adequate sanitary facilities. If new equipment 
was not available, usable second-hand equipment was to be secured. 
New shop sites were selected in industrial areas affording good trans- 
portation facilities in order to relate the project work to industrial 
outlets for employment. When schools could not furnish related 
training, the shop foremen were required to carry this additional load. 
Shops were required to keep equipment working round-the-clock. 
Work orders had to be secured in sufficient quantity and variety to 
keep the youth productively employed. If necessary, machines were 
shifted from locality to locality, or work subcontracted between NYA 
shops. NYA made all possible items for its own use, such as hand 
wrenches, tools, and in some instances, whole units of equipment as 
lathes and metal breaks. 

Production schedules were required in all shops in order that Army 
and Navy products be delivered on time. 

On January 13, 1941, the National Administrator informed State 
administrators that there had been purchased 50 prefabricated steel 
buildings and the machinery necessary for their equipment. 6 These 
structures and facilities were assigned to the various States in rela- 
tion to anticipated labor needs of defense areas, and other local con- 
ditions. Standard machinery and equipment for the prefabricated 

a NYA Memorandum, Washington Office, Original Document dated December 20, 1940, and 
revised January 15, 1941, sec. 2. 
566597—44 11 



148 



NATIONAL YOUTH ADMINISTRATION 



shops were designated by the Washington office. Each prefabricated 
shop was required to have the following appliances : 

Soda-acid fire extinguisher, 1 unit. 
Fire hose, 2 50-foot lengths. 
Couplings, 2 sets. 
Kespirators, 2 units. 
Filters, 5 units. 

All defense shop projects had to meet certain standard specifica- 
tions. As will be described under separate types of shops, the num- 
ber of work stations was listed; and adequate supervision, flow of 
materials, production reports, and records of progress were desig- 
nated. The following types of shops were eligible under the defense 
program; a defense shop project could be a one-type shop or a 
combination-type shop : 



Machine. 
Sheet metal. 
Welding. 
Foundry. 
Forge. 

Patternmaking. 



Electrical. 
Aviation mechanics. 
Eadio. 

Industrial sewing. 
Auto mechanics. 
Woodworking. 



In 1942, the War Manpower Commission approved 53 semiskilled 
occupations essential to war production, for which NYA was per- 
mitted to prepare its workers. The following table gives the approxi- 
mate training periods scheduled for the specific occupations: 



Table 48. — Selected occupations with critical shortage of labor 



Occupations 



1. Acetylene-burner operators 1 

2. Armature winder, all around 1 

3. Boilermaker helper, assembly and erection 

4. Bolter-up (ship and boat building and repair) i__ 

5. Boring-machine operator, automatic 1 

6. Bucker-up (construction, ship and boat building) 

7. Burrer, hand 1 

8. Centerless-grinder operator 

9. Chassis assembler, radio 

10. Chipper, metal 

11. Coil assembler, electric 

12. Coil winder, production 

13. Cylindrical grinder operator 1 

14. Detail assemblers 1 

15. Dynameter tester, motor 1 

16. Electrical assembler 

17. Engine lathe operator 2 

18. External-grinder operator, production 1 

19. Final assembler, aircraft 1 

20. Flanging-press operator 

21. Floor assembler (machine shop) 

22. Forging press operator 

23. Gear-tooth grinder 

24. Gisholt-lathe operator 

25. Internal grinder operator 2 

26. Lapping machine operator 1 

27. Milling-machine operator 2 

28. Nitrating-acid mixer 

See footnotes at end of table. 



NYA 
training 



yes 

yes 

no 

yes 

yes 

no 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

yes 

no 

yes 

yes 

no 

yes 

yes 

yes 

yes 

no 



Approximate training 
period 



2-6 months. 

Less than 2 months. 

2-6 months. 

6-12 months. 

Less than 2 months. 

2-6 months. 

Less than 2 months. 

2-6 months. 

Less than 2 months. 

Less than 2 months. 

Less than 2 months. 

Less than 2 months. 

6-12 months. 

2-6 months. 

2-6 months. 

6-12 months. 

8-12 months. 

2-6 months. 

6-12 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

6-12 months. 

2-6 months. 



FINAL REPORT, FISCAL YEARS 1936-1943 149 
Table 48.— Selected occupations with critical shortage of labor — Continued 



Occupations 



NYA 
training 



Approximate training 
period 



Oxyacetylene cutting-machine operator 

Painter, boat, rough 

Plate hanger (ship and boat building and repair). 

Punch -press operator, automatic 1 

Radial-drill-press operator 1 

Radio equipment assembler, special 

Riveter, aircraft 1 

Riveter, hydraulic 

Rivet heater * 

Rotary-surface grinder operator 1 

Screw-machine operator, semiautomatic 1 

Sheet metal worker helper 1 

Skin man, aircraft 2 

Steel-plate calker 

Still operator 

Straigntener, hand 

Straightening-press operator 

Tank tester (ship and boat building and repair).. 

Thread-grinder (machine tool) 1 

Thread-milling machine operator 

Turret-lathe operator 

Turret-lathe operator, automatic 1 

Welder, arc 1 

Welder, butt » 

Yardman (ship and boat building and repair) 



yes 
yes 
no 
yes 
yes 
yes 
yes 
yes 
yes 
yes 
yes 
yes 
yes 
no 
no 
yes 
yes 
no 
no 
no 
yes 
yes 
yes 
yes 
no 



2-6 months. 

2-6 months. 

6-12 months. 

Less than 2 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

2-6 months. 

Less than 2 months. 

2-6 months. 

2-12 months. 

2-6 months, 

2-6 months, 

2-6 months.. 

2-6 months.. 

2-6 months. 

2-6 months, 

6-12 months". 

Less than 2 months.. 

2-6 months. 

2-6 months. 

2-6 months. 



1 Occupations in which women are now employed. 

2 Occupations suitable for women workers. 

As the demand for workers in war industries increased in all labor 
market shortage areas, NYA training periods were reduced and 
youth left shops for industrial employment frequently after only 
2 or 3 weeks of employment in a NYA war production training shop. 

In February 1942, NYA operated more than 3,900 production units* 
including power sewing units, with almost 52,000 individual work 
stations. These units were being operated on an average of two 
8-hour shifts each clay. Two-thirds of the production units were 
made up of machine and metal working stations. The program was 
concentrated in the mid-Atlantic region where, with the exception 
of Connecticut and the west coast, defense work was heaviest. The 
Washington office recommended 3-shift operation, but this could not 
be achieved because of the lack of sound production and, in some 
areas, a shortage of unemployed youth. NYA shops were urged to 
make as many small tools and machine parts as possible for their own 
use or purchase by other States to equip their workshops. 

Following is a partial list of spare parts, tools, and other items 
which were made for NYA use in addition to other regular production : 

Spare Parts, Tools, and Other Items Made in NYA Shops 
Machine Shop 

At least two sets of centers for each lathe (if shop was equipped with* 
tool post grinder). 

A complete set of dogs for each lathe, suitable to size of lathe.. 
A large and a small face plate for each lathe. 



150 NATIONAL YOUTH ADMINISTRATION 

At least one spare tool post, with base and wedge, for each lathe. 
At least three tool holders (one straight, one left, one right), for 
each lathe. 

At least three mandrels, or arbors, for each type of milling machine 
cutter. 

An extended tool holder for interior keyseating for each shaper and 
planer. 

At least three tapered sockets or sleeves, of each size, for each drill 
press. 

At least two tapered drifts for each drill press (for drifting drills in 
tapered sockets). 

A quantity of blocks and hold-downs for each shaper, milling ma- 
chine and planer. 

An adequate quantity of suitable T-headed bolts for each planer, 
shaper, and milling machine. 

Standard blocks, wedges, and chocks for each planer and shaper. 

Machine Shop Tool Room 

A large quantity of both outside and inside calipers, of the stiff- 
jointed type; sizes included the maximum capacity of any machine 
in the shop. 

Drivers (hermaphrodite). 

Screw drivers of all sizes, properly heat-treated. 

Squares of all sizes. 

Surface gauges. 

Parallel blocks of all sizes for milling machines. 

V-blocks of all sizes. 

Scribers. 

Chisels. 

Hammer heads of all sizes, properly heat-treated. 

Sheet Metal Shop 

Machine tables. 

Trays. 

Tool boxes. 

Buckets, 2y 2 gallon. 

Measures, 1 gallon, % gallon, 1 quart. 

Wheelbarrows. 

Funnels, varied sizes. 

Racks of all kinds. 

Pigeonholes for stockrooms. 

Shelving. 

Bins. 

Folding welding shields. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



151 



Radio Shop 

Of the 10,000 kits of a.c.-d.c. receivers and interoffice communicators 
purchased by the national office, 2,000 units of 5-tube a.c-d.c. sets 
were delivered to the field. With the component part on hand, plus 
the addition of a few extra parts, the following items were made on 
a standby basis : 

Vacuum tube-volt meters. 

E. C. O. oscillators. 

Variable frequency signal generators. 

Interoffice communicators for Army, Navy, and other public 
agencies 
Receivers. 

All types of test equipment, as outlined in "Radio Amateur Hand- 
book." 

In September 1942, the national office received reports that in cer- 
tain areas machines were idle because of lack of sufficient production 
work, or because the production was not sufficiently diversified to 
make use of all types of machines in the shop. Supervisors were in- 
structed to form groups of NYA youth to use idle machines for train- 
ing purposes. Only scrap metal was used for this training. 8 In or- 
der to utilize NYA shop equipment for training purposes, the Na- 
tional Youth Administration and the United States Army reached 
an agreement in November 1942 whereby Army personnel might be 
assigned to war production training projects provided NYA activities 
were not restricted or interrupted. Each such arrangement required 
the approval of the Washington offices of both organizations. NYA 
was reimbursed for the use of its facilities, personnel, and services 
furnished. The War Department was furnished with a list of project 
locations which had facilities available for use by Army trainees. 9 

It was necessary to secure priorities for most of the materials used 
on NYA projects during the war period. When production was for 
the armed forces, or the Maritime Commission, materials were secured 
by these war agencies. Critical tools and materials for production 
co-sponsored by other public agencies required priority certificates and 
preference ratings in accordance with the conservation orders of the 
War Production Board. 

Under the war production training program there were three re- 
serves of manpower which were given special consideration in pre- 
paring them for employment in war industries, namely, young women, 
physically handicapped youth, and Negroes. 

NYA recruited girls diligently. In July 1942, girls comprised 38 
percent of the total number on the rolls. In January 1943, this pro- 



8 NYA Memorandum dated Sept. ll, 1942. 

9 NYA Memorandum dated Nov. 26, 1942. 



152 



NATIONAL YOUTH ADMINISTRATION 



portion rose to almost 43 percent. At first NYA girls did spot weld- 
ing, assembly, and inspection, which were related to the openings oc- 
curring for them in industry. As the labor shortage grew, war con- 
tractors employed them as workers in shipyards, aircraft factories, 
and machine shops. They were in great demand for delicate as- 
sembly of electric motors, switch boxes, panel boxes, and instrument 
boards, and as fuse makers and radio assemblers. The War Man- 
power Commission and industry sent out appeals for women. Mobil- 
ization drives were conducted in practically every shortage area to 
secure women willing to accept wartime employment. Although 
NYA did all it could to recruit young women for war production 
training projects, in order to prepare them for employment in esssen- 
tial occupations, the number of girls never reached the same propor- 
tion as boys on the program. 

Draft boards, public welfare services, the IT. S. Employment Serv- 
ice, and the State rehabilitation services recommended physically 
handicapped youth to NYA. Many could learn both simple and com- 
plex mechanical operations, and were readily accepted by industry if 
adequately trained. 

During fiscal years 1942 and 1943, NYA employed Negroes in shops 
on a higher-than-population ratio. Wartime employment oppor- 
tunities developed very slowly for Negro youth trained by NYA even 
though their ability and job performance were equal to the white 
youth. The National Administrator requested State administrators 
in March 1942 to give particular attention to the provision of oppor- 
tunities for Negro youth in NYA defense activities, particularly in 
those instances where the regular program project activities had been 
discontinued or curtailed. 10 

Vocational Farm Shops 

It has been observed elsewhere in this report that resident centers 
were planned and established primarily for rural youth. Local co- 
sponsors and local NYA supervisors soon discovered, however, that 
there were many rural youth who could not be served by resident proj- 
ects because they could not or would not leave their homes for periods 
of several months. Nevertheless, they were in need of the type of 
work experience which workshops furnished, and their personal apti- 
tudes and general environment particularly conditioned them to benefit 
from such an opportunity. A partial answer to the problem of 
developing valid work projects for needy rural youth was the con- 
struction of farm machinery repair shops and rural vocational shops 
in cooperation with State and local vocational authorities, which were 
equipped for repair service and the production of articles of useful 
value to the farm community. From fiscal year 1937 through 1942, 



10 NYA Memorandum dated Mar. 23, 1942. 



FINAL REPORT, FISCAL YEARS 1936-1943 



153 



a total of more than 1,376 vocational farm shops were constructed by 
NYA youth working under qualified supervisors and another 198 had 
been reconstructed or improved. 

Production in vocational farm shops included the repair of farm 
machinery and equipment, farm carpentry, the building of farm 
forges, the making of metal fence posts, construction of storage bins 
and silos, and other wood or metal work. Articles produced went to 
NYA resident centers, to county agricultural agents, to rural schools, 
and to other municipal agencies. Youth gained needed familiarity 
with modem farming equipment, its use and maintenance. Only a 
email number of rural girls were employed in these vocational farm 
shops, although the work experience would have been useful when 
girls were needed on farms in 1942 and 1943 to run and repair tractors, 
to operate electric power plants on farms, and to drive milk trucks 
to and from markets in order that this country's war food production 
would surpass all previous records of agricultural production. 

The large number of vocational farm shops (approximately 400) 
built by NYA youth in fiscal year 1942 arose out of the defense emer- 
gency need for vocational shops to prepare rural youth for defense em- 
ployment under the defense training program carried on by the public 
vocational schools. The building of these shops was approved and 
cosponsored by the State boards of vocational education. Seven out 
of every 10 of these shops were located in communities of 2,500 popula- 
tion or less. 

Woodworking Shops 

Up to the time of the defense emergency, carpentry and other types 
of woodworking were the principal shop activities in which NYA 
youth received work experience. Many schools needed new furniture 
or furniture repaired, and laboratory and recreational equipment. 
NYA woodworking shops met part of this need. Furniture was also 
built and reconstructed for NYA local offices, projects, and resident 
centers. 

Another community need was for outdoor and indoor recreational 
equipment, such as playground swings, slides, and teeters; wooden 
park benches and picnic tables ; checkerboards and pingpong tables. 

For public institutions throughout the country, NYA youth rebuilt 
and refinished thousands of school desks and other school equipment. 
Almost no item within the range of woodwork shops was excluded 
from the war production program. Laboratory tables, recreational 
equipment, cabinets, desks, chairs, dressers, davenports, tables, window 
frames, doors are examples of NYA woodwork shop production. 

Under the defense program in fiscal year 1942, woodworking shops 
were required to have at least 15 work stations and to include pattern- 
making, joinery, or some other form of woodworking approved as a 



154 



NATIONAL YOUTH ADMINISTRATION 



defense occupation first by the Office of Production Management, 
later by the War Manpower Commission. The type of production 
and the hours of training also required approval of these war agencies. 

Each shop was required to have as a minimum the following 
machines : 



Cut-off saw. 
Table saw. 
Mortiser. 
Shaper. 
Sander. 



Planer. 
Joiner. 
Band saw. 
Tenoner. 
Lathe, 



For every three machine work stations, an additional station was 
added for bench assembly work. Hand tools necessary for all opera- 
tions were required. Girls were not assigned to these projects until 
fiscal year 1942. 

Following is a partial list of woodwork shop production items: 11 



Item of accomplishment 




Total 


Produced 


Repaired 


Lumber and lumber products: 

Lumber produced (board feet) 


52, 123, 604 
324, 769 

1, 337, 185 
775, 486 

1, 897, 000 
115, 196 






Firewood cut (cords) _ _. 






School furniture l . __ _ 






Household and office furniture 1 - - _ _ - 






School office and household furniture 2 . .... . 






Rustic and outdoor furniture 1 . . . . _-. 






Wood signs., .... _ _ ___________ ... 


211, 975 
199, 737 
914 
296, 670 
1, 327, 732 
62, 297 


193, 063 


18, 912 


Window and door sashes, frames and screens 1 .. __ 


Looms 3 __ __________ 


787 
287, 972 
1, 322, 444 
62, 297 


127 

8, 698 
5,288 


Wood containers 3 . _ __________________ 


Other lumber products (number) 3 „. . 

Other lumber products (linear feet) * _ . 







1 For the fiscal, years 1940, 1941, and 1942. 

2 Cumulative through June 30, 1939. 

3 For the fiscal years 1941 and 1942. 
* For the fiscal year 1942 only. 

Such defense items as work benches, target frames, ammunition 
shipping cases, machine gun boxes, ammunition boxes, footlockers, 
and hospital chests also were made for the armed forces. 

Metal Shops 

Metal shops were first developed in fiscal year 1939 and were in- 
creased in number until in 1943 there were over 600 shops in operation 
employing 18,800 youth as late as April 1943. Youth did sheet metal, 
welding, and forge work in metal shops and made products of both 
ferrous and nonferrous metals. If a forge shop were established as 
a shop unit, the Washington office required that there be 12 work 
stations with a minimum of 6 forges. When the equipment included 
a power hammer, this hammer was not counted as a work station. 

11 Items were reported for the fiscal years 1937 through 1942 unless otherwise indicated 
by the appropriate footnote. Data excludes Connecticut, District of Columbia, Utah, and 
Wyoming for the fiscal year 1942. 



566597—44- 



-11 



FINAL REPORT, FISCAL YEARS 1936-1943 



155 



An example of a small metal shop project was at Athens, Ohio, 
where 68 young men were assigned to a sheet metal shop under the 
supervision of an instructor with 20 years of practical experience. 
The youth made metal furniture, filing cabinets, and other metal arti- 
cles using the bending and shaping equipment, and spot-welding the 
sheet metal. The various types of pre-employment experience gained 
here were planning and lay-out of work, arc and gas welding, cutting, 
general manufacturing principles, and painting with brush and spray 
gun. Each youth was required to keep a record of the time it took 
him to perform each operation as part of the production scheduling 
training method and also to develop good work habits. Ohio Uni- 
versity provided related training teachers for courses in aircraft struc- 
ture and aircraft engines, and the University gave certificates to boys 
who successfully completed 6 months of related work. The com- 
munity accepted this metal-working shop as the basis for vocational 
schools to be organized for all Athens County. 

In addition to local public agencies, cosponsors were the War and 
Navy Departments, and Maritime Commission. 

The following is a partial list of metal products made in NYA 
metal, forge, and foundry shops : 12 



Item of accomplishment 



Number units produced and repaired! 



Total 



Produced Repaired 



Metal products, ferrous and nonferrous: 

Metal school furniture 1 

Other metal furniture 1 

Hand tools, including edged tools 

Signs and name plates 1 

Heating and plumbing fixtures 1 

Lighting and electrical fixtures 1 

Household and hospital kitchens 2 

Ornamental metal work 1 

Wire products 1 ' 

Bolts, nuts, washers, rivets, screws, etc. 1 

Gun parts and equipment 1 

Stamped and pressed metal parts 1 

Machine tool parts; dies, etc. 1 

Other machinery parts 

Other rough or finished machined parts 1 '. 

Other sheet metal work (number) 

Other sheet metal work (linear feet) 3 

Other metal products 1 

Tools or mechanical equipment constructed or repaired 1 



146, 776 
148, 565 
362, 045 
299, 047 
58, 686 
53, 881 

65, 086 

66, 727 
206, 204 
492, 852 
841, 240 
267, 366 
113, 919 
167, 707 
412, 205 
873, 611 

500 
379, 101 
274, 030 



30, 182 
124, 317 
300, 264 
270, 636 
38, 698 
40. 622 
59, 755 
65. 796 
204, 771 
, 266, 419 
573, 379 
262, 812 
103, 831 
151, 543 
402, 605 
847, 839 
500 
322, 050 



116, 594 

24, 248 
61, 781 
28, 411 
19, 988 
13, 259 

5, 331 
931 
1, 433 
226, 433 
267, 861 
4, 554 
10, 088 
16, 164 
9, 600 

25, 772 



2, 057, 051 



1 For the fiscal years 1941 and 1942. 

2 For the fiscal years 1940, 1941, and 1942. 

3 For the fiscal year 1942 only. 

* Cumulative through June 30, 1939. 



The work experience gained by youth in the production of these 
products resulted in quick placements of the youth in essential war 
employment. Turnover was exceedingly high, and youth were eager 
for the work and training obtained on these projects. 



n Above items were reported for the fiscal years 1937 through 1942 unless otherwise 
indicated by the appropriate footnote. Data exclude Connecticut, District of Columbia, 
Utah, and Wyoming for the fiscal year 1942. 



156 



NATIONAL YOUTH ADMINISTRATION 



Foundry Shops 

NYA operated about 40 small foundry projects or foundries in con- 
nection with metal shops in which youth acquired work experience in 
green sand molding, dry sand molding, core making, the melting of 
metals, patternmaking, and blueprint reading. The minimum re- 
quirement for a foundry project was 12 work stations and the number 
of stations was determined by the size of the cupola, the auxiliary 
equipment, and the amount of floor space. For example, NYA tech- 
nicians considered that a 2,000-pound cupola with a core-making 
machine, a core oven, and an adequate number of flasks and hand 
tools allowed 12 work stations. The following illustrates items pro- 
duced in foundry units : 

Casting torpedo boat ventilator cap forms. 
Aluminum castings. 
Brass and bronze castings. 

Patternmaking Shops 

Youth in mechanical shops were familiar with patterns, although 
few had actually made them. NYA had only a very limited number 
of patternmaking shops. Some 20 or 30 were established at the be- 
ginning of the defense period. To be classed as a standard pattern- 
making shop, 12 work stations were required. Each bench was 
counted a work station. Necessary auxiliary equipment included hand 
saw, circular saw, joiner, lathe, and adequate hand tools for the making 
of usual patterns. Few girls were assigned to patternmaking shops. 

Machine Shops 

Machine shops under the defense program were about 400 in number 
and each shop was required to have a minimum of 21 work stations, 
with machines such as lathe, shaper, plainer, milling machine, surface 
and horizontal grinder, and equipment such as sensitive drills, bench 
and pedestal grinding wheels, metal cutting band saws, and power 
hack saws. In addition to actual machine operation, other shop duties 
were included in regular work routines — maintenance of the tool room, 
operation of the small auxiliary equipment, and bench (particularly 
assembly) work. In no instance were two youth in any one shift 
assigned to the same individual machine. 

NYA youth in machine shops produced many items of mechanical 
apparatus and equipment. In addition, machine shops serviced other 
NYA shops by doing the machine repair and machining of small parts. 
NYA workers performed both hand and machine operations and had 
an opportunity to become familiar with the elements of machines, 
tools, and methods. The youth did lay-out and bench work, in addi- 
tion to operating machines. 



FINAL REPORT, FISCAL TEARS 1936-1943 



157 



In most machine shops, a youth was trained on one machine only r 
and was termed a "machine operator." Definite job outlines, usually 
20 to 30 jobs, based on machine operations were set up for each 
machine. 

Examples of apparatus and equipment produced by NYA youth in 
machine shops during fiscal years 1940 through 1942 are as follows: 





Number units produced and repaired 


Item of accomplishment 










Total 


Produced 


Repaired 



Mechanical apparatus and equipment: 

Metalworking and woodworking machinery K 

Agricultural machinery 1 

Office and household machinery » 

General industrial machinery 1 

Electric motors and generators 2 

Radio transmitters and receivers 2 

Interoffice communication systems 1 

Autos, trucks, and tractors 2 

Aircraft (including gliders) 1 

Boats (under 5 tons) 1 

Ships, coast guard cutters, etc. (over 5 tons) K 
Other mechanical apparatus and equipment 3 - 



1 For fiscal rears 1941 and 1942. 

2 For fiscal years 1940, 1941, and 1942. 
* For fiscal year 1942 only. 

Aircraft Shops 

In 1938 and 1939, youth in NYA automotive shops liked to tinker 
with airplane motors, and often they requested that related training 
in aviation be given them, which was occasionally accomplished by 
securing plane motors and equipment discarded as obsolete by the 
Army or Navy and municipal airports near the projects. In fiscal 
year 1940, NYA youth constructed for municipal airports hangars and 
airport equipment, such as range and boundary cones, corner markers,, 
and windsocks. These youth were interested in aviation mechanics 
and the Civil Aeronautics Administration cooperated in setting up 
related training in this field. The youth also were engaged in con- 
struction of seaplane bases and wanted to know more about the planes 
which landed at the pontoons they had built. Aircraft mechanics 
training courses were set up for them. 

In 1939 and 1940, NYA officials arranged with the CAA, the Army, 
and the Navy for work in aircraft sheet metal. Woodworking, weld- 
ing, radio, and electrical shops performed work related to aviation, 
In the latter part of 1940, a number of aviation mechanic projects 
were organized, and by 1942 there were 35 aircraft mechanic and 
engine mechanic shops. 

One of the earliest aviation projects was the Air Depot Resident 
Work Center at Middletown, Pa., cosponsored by the U. S. Army 
Air Corps, the Harrisburg School System, and the Pennsylvania State 
Department of Public Instruction. An active local advisory com- 



3, 634 
126 

2, 250 

4, 022 




158 



NATIONAL YOUTH ADMINISTRATION 



mittee of 30 citizens representing education, industry, and labor as- 
sisted in planning and developing this project. Each youth went 
through a preliminary work experience period during which he alter- 
nated NYA shop work with defense courses in the public vocational 
school. He worked on motors, starters, generators, fuselages, wings, 
radio equipment, and aircraft parts from Army and Navy stocks. In 
the defense training classes he learned to read blueprints, studied elec- 
tricity, became familiar with trade terms, shop practices, and general 
aircraft production methods. When the NYA supervisor judged a 
boy sufficiently prepared, the youth was assigned to the Middletown 
Air Depot where he was employed 2 weeks of each month in one of 
the departments of the Air Depot on engine repair, sheet metal, ma- 
chine shop, instrument repair, electrical work, propeller work, dope 
and fabric work. One-third of the boys were employed as clerks, 
stenographers, warehousemen, and general helpers, and were super- 
vised by the regular depot staff. The time schedules and rules of 
regular employees were observed, although the NYA youth were paid 
only the small monthly NYA wage. The youth found employment in 
industry as beginners in machine and metal shops. A number passed 
civil-service examinations as general mechanics helpers and started 
work at $110 a month. 

Another similar NYA project in 1941 was located at the Fairfield 
Air Depot in Dayton, Ohio, where 360 NYA youth received 6 months' 
work experience in engine, instrument, or plane repair, machine pro- 
peller, woodworking, or parachute shopwork. Kelated training was 
provided by the public schools from defense training funds in blue- 
print reading, shop mathematics, and kindred subjects. Most of the 
youth obtained civilian jobs in the Army Air Corps. 

In April 1942, 5 Army-cosponsored NYA aviation projects were 
operated in Pennsylvania, Ohio, Minnesota, California, and Texas 
(where girls were employed) . The new air depot at Ogden requested 
a NYA project. Aviation projects soon had to be enlarged to ac- 
commodate the unemployed youth who wanted this type of work and 
to complete the production contracts on the schedules indicated by the 
Army or Navy. At Duncan Field Air Depot in Texas, 89 of the first 
group of 109 NYA youth workers found civil service jobs at the depot. 

In August 1941 the national NYA office prescribed a minimum of 
12 work stations for each standard aviation mechanics shop. To 
qualify under the defense program, shops had to give work experience 
on actual planes and be located near or connected with an air depot 
or aviation base. Youth working in other NYA mechanical shops 
were allowed to use the aviation shop equipment for related training 
up to 80 hours a month if training schedules could be arranged with- 
out interference with production work. 



FINAL REPORT, FISCAL YEARS 1936-1943 



159 



The NYA had a small number of projects on which youth built 
gliders and glider trailers. The Washington office relayed to State 
offices the method of cooperation with the CAA in the construction 
of these motorless planes. For example, at the Cassidy Lake Resident- 
Center in Michigan, a group of NYA youth was employed on a glider 
project involving flying, assembly, and upkeep of planes and the main- 
tenance of the flying field itself. In Minnesota, five complete gliders 
were constructed for the State for use at airports throughout the State 
in cooperation with the State Aeronautical Commission. The gliders 
received CAA approval. 

NYA youth also built or made additions to 23 and repairs to 58 
landing fields, erected 31 aircraft hangars, and made improvements 
on 22 others. They built 49 other small airport buildings and im- 
proved or reconstructed 88 more. h 

Radio Shops 

While NYA radio shop projects were never a large part of the 
workshop program, they were in operation from the beginning of the 
shop program in fiscal year 1938. By fiscal year 1940, considerable 
improvement had been made in the quality of the radio shops and the 
type of radio work done by the NYA youth employed on these projects. 

In 1940, NYA was requested by military officials to train 5,000 radio 
operators under a shortened, intensive course. In order to have sup- 
plied the military services with this number of qualified radio opera- 
tors, approximately 15,000 youth would have had to be assigned to 
radio projects. Equipment and supervisors were not available for 
such a large number of youth to perform work, such as the building 
of transmitters, receivers, public address systems, interoffice com- 
munication systems, electronic burglar and fire alarms, and electric- 
eye speed recording devices. Standard Signal Corps radio courses 
were adapted for NYA use and distributed to all radio projects. Al- 
though employment of NYA youth as radio operators increased, 
NYA was never able to meet the request of the military services. 

Under supervision, NYA youth built and operated a Nation-wide 
short-wave radio network of amateur stations. More than 31,000 radio 
transmitters and receivers were made in fiscal years 1940 through 1942. 
Many State-wide networks were built for local police departments. In , 
Maine, spurred on by the model radio workshop at "Quoddy" Resident 
Center, NYA radio activity was State-wide. In April 1940, a gale and 
blizzard destroyed telephone and telegraph communications for a part 
of the State and nearby Canadian Island. The NYA "Quoddy" radio 
was the only link to the outside world. Messages were relayed by 
amateurs, and NYA -built police car transmitters carried messages to 
ships at sea as well as to points on land. The State of Maine also con- 
tributed $10,000 for materials for NYA to construct a State-wide police 



160 



NATIONAL YOUTH ADMINISTRATION 



network. NYA youth finished this assignment on schedule, and the 
completed equipment could not be distinguished from a factory job, 
either in appearance or performance. The first unit in this system 
provided for 2 fixed transmitters at Wells and Thomaston, in 15 mobile 
•units operated with 10 watts power on 39,000 kilocycles for two-way 
.operation to be installed in police cars. 

All over the country, in their leisure time, NYA youth formed, radio 
clubs, took part in the NYA amateur short wave network, and tinkered 
after hours with old radios. There can be no computation of the value 
of this leisure -time work. 

Kelatively few girls were employed on radio projects, although their 
employment in radio industry had always been high and was steadily 
mounting. Twenty-five girls in a resident center at Brenham, Tex., 
formed an all-girl amateur short wave radio club, and in 2 months' time 
most of them had attained a received rate of eight words a minute. 

[Electrical Shops 

NYA youth working in radio, woodworking, mechanical, and other 
shops learned to operate the electrical equipment in these shops. Youth 
also did the major part of the electrical work for NYA resident and 
local work centers and shops. NYA youth installed power lines, placed 
floodlight standards ; laid police, fire, and traffic signal wire, telephone 
and telegraph lines. The following are representative of the extent 
of electrical work NYA youth performed during fiscal years 1941 and 
1942: 







Work completed 


Item of accomplishment 




New construc- 


Reconstruction 






tion or 


or improve- 






additions 


ment 


Electric or communication facilities: 








Electric power lines.. .. . . .. 


miles . 


1, 116. 6 


846.4 


Fire alarm and nolice call boxes 


number.. 


3, 030 


2,276 


Floodlight standards placed . . 


do..„ 


457 


Police, fire, and traffic signal wire.. 


miles.. 


43 


2. 1 


Telephone and telegraph lines 


do.... 


88.7 


61.8 


Telephone and electric lines, fiscal year 1940 


do.... 


583.0 


293.0 



There were very few shops devoted exclusively to electrical work. 
In 1942, when electrical shops were designated as a separate shop 
classification, there were more than 25 electrical units for the employ- 
ment of a maximum of 540 youth workers. The minimum number 
of work stations was 12, depending on and varying with equipment, 
floor space, and production. For example, a shop doing motor work 
needed a small bench lathe, equipment for rewinding motors from 
fractional to 5 horsepower, and equipment to rewind both motor arma- 
tures and motor fields up to 5 horsepower. Shops which did house 
wiring were required to be equipped to do knob and tube work, con- 
duit bending and installing of all types, and BX cable work. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



161 



Auto Mechanic Shops 

There were auto mechanic shops in every State and resident centers 
generally had auto mechanic shops. Work production in auto me- 
chanic shops included removal and installation of motors, grinding 
valves, carbon and engine tune-up, bearings and cylinder work, piston 
rings and pins, exhaust and intake system, front and rear axle, clutch, 
transmission, steering gear, electrical system, lubrication, brakes, 
wheels and tire work, springs, frame and fender repair, painting, gas 
station services, washing and polishing bodies, and toolroom service. 
The NYA boys who finished this work and training were not master 
mechanics, but they were fairly well trained in auto mechanics. NYA 
cars and those belonging to other governmental agencies were serviced 
in these shops. While NYA had its own supervisors, often local 
garagemen helped supervise the youth, while keeping their eyes on 
likely youths for jobs. 

An example of a small auto mechanic shop was one at Miami, Fla., 
set up in a WPA warehouse. Boys tuned up engines, replaced light 
bulbs, made repairs and replacements, disassembled and reassembled 
engines, and made body fender repairs. They attended related train- 
ing classes regularly where they received instruction and practice in 
problems of ignition, batteries, engine-power, individual auto parts 
and functions, and other related automotive subjects. Attendance 
at these related training courses was continuously good. 

To qualify under the defense program an auto mechanic shop had 
to have 12 work stations with space for at least 5 cars or trucks at one 
time. Each such space counted as 2 work stations. In a 12-station 
shop, 1 additional work station could be established in the tool room 
and 1 in the parts department. A shop had to have the equipment 
necessary to repair and overhaul as many cars or trucks as the shop 
accommodated. 

Shoe Repair Shops \s 

There was a small number of NYA projects set up for shoe repair 
and some 220,000 shoes were reported by State administrators as hav- 
ing been repaired in fiscal years 1937 through 1942. At Manassas, Va., 
for example, physically handicapped youth were taught shoe repair 
in an up-to-date mechanized shop. Women's clubs collected worn- 
out shoes, which youth repaired for distribution to needy persons by 
charitable agencies. A similar shoe repair shop for Negro youths was 
operated in Indianapolis. 

Industry Endorsement of NYA Youth 

In 1943, leading war production industries, totaling about 300 in 
28 States, testified concerning the training and workmanship of NYA 
youth. Below are some quotations frm letters received by NYA: 



162 



NATIONAL YOUTH ADMINISTRATION 



California Shipbuilding Corporation, Wilmington, Calif. : 

Our records indicate that these men (NYA) have come to us well qualified 
for shipyard work, and they have proven themselves to be excellent employees. 
We hope your training program is to continue during the coming year and that 
we shall be able to count on additional men * * * 

Carnegie Steel Corporation, Pittsburgh, Pa. : 

We have found that NYA trained boys generally have an excellent background 
in work experience and in citizenship which permits their induction into our 
shops with a minimum disturbance to the unit and to us. They appear to 
adapt themselves very easily to our training activities, evidently because of 
their previous training. 

Delco Radio Division of General Motors Corporation, Kokomo, Ind. : 

Checking the records of our new employees we find several people who have 
had previous work experience and training offered by NYA. We find in 
most cases that these people are more adaptable to their work assigned 
than new employees without previous training or the benefit of some vocational 
training * * * 

Extracts of a telegram from the Independent Pneumatic Tool Com- 
pany of Chicago: 

We have had considerable experience with the work centers of the NYA 
and cannot be too enthusiastic in our praise of them. 

Lockheed Aircraft Corporation, Burbank, Calif. : 

After observing our records, we find that your boys have without exception been 
above the average * * * There is no doubt that Lockheed is indebted to 
you and your organization for the work you have done in aid of national 
defense. 

The Remington Arms Co., Bridgeport, Conn.: 

To date we have in our employ 50 boys who have had some previous shop 
training under NYA instruction. Our experience with these boys has been 
satisfactory. By placing some with our more experienced workers and ma- 
chinists, we have been able to partially fill a gap caused by our inability to obtain 
more experienced help. 

The Trow Engine & Machine Co., Troy, Pa. : 

We wish to advise that we have employed several young men in our plant 
who have had pre-employment training, such as conducted by your administra- 
tion, and find that they have a distinct advantage over young men without this 
training. 

Nonmanual Projects 13 

Nonmanual projects as differentiated from manual projects were 
white-collar work activities such as clerical and stenographic work; 
hospital and institutional assistance ; home economics, nursery school, 
and school lunch projects activity; recreational assistance; arts and 

13 'See appendix B, table 18 for percentage distribution of youth employed on the out-of- 
school work program by sex and type of project for fiscal years 1940 and 1941 ; and tables 
19 and 20, by sex and type of work activity for fiscal years 1942 and 1943. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



163 



crafts, library and museum work ; and research and subprof essional 
work, such as statistical and survey assistance. In the initial years of 
the NYA, white-collar projects, artsknd crafts, and other assistance 
types of work activities dominated the work program. There were so 
few employment opportunities for youth in manufacturing industries 
and trades that there was little public interest in or support of projects 
involving specialized shop production or construction. The non- 
manual projects were less complicated, and cosponsors were numerous 
and easily obtained. Every public agency needed clerical assistance. 
There were no funds for community recreational leaders, and youth 
were idle and needed recreational outlets. Other community services 
were similarly neglected. Nonmanual projects met a community need 
for services, and were on the whole beneficial to the youth. 

Clerical and Stenographic 

Until the defense work project program was well under way, the 
largest single project employment was in clerical and stenographic 
work. Many public and quasipublic offices were in great need of extra 
workers. NYA clerical projects were not operated with any agency 
which engaged in propaganda or attempted to influence legislation. 
No NYA youth worker could be assigned to NYA State or local 
offices. 

Young people themselves preferred clerical work to homemaking 
and other "dirty-hand" projects. While NYA always stressed the 
value of manual labor, youth clerical projects were always in demand 
and cosponsors available. 

There were two general types of clerical and stenographic projects. 
The first type was one in which a single youth or a very small number 
of youth were assigned to a school principal, a YWCA, a settlement- 
house office, or to a hospital clinic to perform clerical work. While 
the young people learned good work habits and often developed help- 
ful personal relationships with the school principal, the YMCA sec- 
retary, or the receptionist in a hospital, supervision was often lax, 
progress slow, and general standards of work and learning low. In 
elementary schools, a NYA worker was frequently only a messenger. 
Employment offices did not credit highly the work experience of this 
solitary NYA employee. The other type of clerical project was the 
larger, better-organized "pool" 6^ NYA clerical workers who signed 
in and out of offices, were required to pass aptitude and progress tests, 
used good equipment, and benefited from exacting supervision and 
a wide range of clerical or stenographic work experience. NYA 
recommended the employment of at least 25 youth in each clerical 
project. 

To qualify for placement on clerical projects required high-school 
education or 2 years in high school and completion of a business-school 

566597—44 12 



164 



XATIOXAL YOUTH ADMINISTRATION 



course. While work experience was not necessary, a year's experience 
could substitute for a year in school. There had to be a definite in- 
terest on the part of the youth in that type of work. Applicants had 
to pass aptitude tests as well as tests of skill approved by the State 
division of youth personnel. Youth who did not meet these qualifica- 
tions and who wanted to do clerical work often were assigned to other 
projects and took related training until they were qualified to do 
clerical work. Typists, stenographers, and correspondents were re- 
quired to pass standard typing and shorthand tests. Girls who could 
do single jobs, such as operating duplicating and calculating machines, 
filing, or switchboard operation were advised to take related training 
in courses connected with distributive occupations. Girls on projects 
had to maintain reasonably satisfactory relationships with their co- 
workers, to own or soon obtain suitable clothing, and to suffer from 
no physical defects or deformities which would disqualify them for 
private employment. 

If youth did not make satisfactory progress on clerical projects, 
they were transferred to other types of work. 

These operating principles were stressed: Regular schedules of 
hours and days of work, and rotation in different tasks to produce 
proficient office skills. Assignments included such work as the taking 
and transcribing of dictation from shorthand, stenotype machine, or 
dictating machine; typewriting, bookkeeping, filing, and indexing; 
preparation of materials for duplication: cutting stencils and opera- 
tion of duplicating machines ; clerical work, such as proofreading and 
other kinds of checking; keeping of records and reports; preparation 
of statistical data and inventories; handling of mail; operation of 
calculating machines; greeting of callers; arrangement of appoint- 
ments ; keeping desks and offices in order ; and preparation of routine 
business forms and papers. NYA workers were not to do current 
maintenance work, such as janitorial service or perform personal work 
for members of the office: nor could they work for any office other 
than the one to which they were assigned. 

Before 'projects were approved for operation, office equipment was 
checked for adequacy and quarters for safety and sanitation. 

Supervisors were usually furnished by cosponsors. In large proj- 
ects, especially where the "pool" plan was used for rotation of work, 
NYA supervisors were also frequently employed. In some States, 
regular meetings of NYA and non-XYA clerical supervisor? were held. 

Before the U. S. Office of Education undertook the related training 
program for XYA youth, much training was done in after-hours on 
clerical projects. This was the only way for workers to acquire more 
practice on office machines. Youth often also registered in continua- 
tion and night school classes in public schools when such training was 



FINAL REPORT, FISCAL YEARS 19 36-1943 



165 



available. At the beginning many youth paid high prices for cor- 
respondence courses ; finally project supervisors were asked to review 
and approve correspondence courses in order to protect the youth. 
After the U. S. Office of Education took over related training, youth 
were directed to vocational school courses, and special sessions were 
sometimes arranged to fit in with NYA work schedules. 

Before youth applied for private office employment, they were 
asked to meet these standards: Passing of fairly difficult tests for 
speed and accuracy in typing and dictation, a reasonable rate of speed 
in typing tabular material, knowledge of operation of one office ma- 
chine other than a typewriter, ability to prepare well-spaced and well 
set-up letters, knowledge of simple filing systems, acceptable handling 
of telephone calls, knowledge and practice of good office manners and 
procedures, good physical health and posture, suitable clothing and 
grooming, dependability, and satisfactory relationships with fellow 
workers. 

Cosponsors were public agencies such as health departments, park 
departments, public schools, county tax offices; and quasipublic 
agencies or organizations such as the YWCA and YMCA, associated • 
charities, and hospital offices. 

Hospital Assistance 

One of the most successful types of projects from the standpoints 
of job training, community service, and health education was the 
hospital project. In 2 fiscal years alone, 1941 and 1942, NYA girls 
assisted in 1,733 hospitals. In order to qualify for such a project, the 
hospital had to be a public or a non-profit-making institution and give 
free service to needy people. The facilities, personnel, and super- 
visory staff had to be of a high quality to assure proper training. 
NYA youth were not permitted to work in tuberculosis hospitals or in 
tuberculosis or isolation wards in general hospitals. In psychopothic 
institutions, youth had at all times to be under the immediate super- 
vision of staff members. 

In organizing hospital assistance projects, there was no attempt to 
give the workers professional nursing training. Cooperation of the 
nurses' associations was solicited in organizing and establishing the 
projects. Each project had to be approved by the NYA State health 
supervisor. Uniforms were furnished by the hospital or NYA. In 
no case did NYA issue certificates of attendance or proficiency. 
Health examinations were given all workers. Only those willing 
to do "housework" on the project were accepted. 

Both boys and girls were assigned to these projects, although the 
boys were few in number as their duties were those of orderlies. 

For NYA girl hospital assistants, the following general routine and 
rotation of work was recommended : 



166 



NATIONAL YOUTH ADMINISTRATION 



1. Orientation period of from 1 to 2 weeks during which girls acted 
as messengers and became familiar with hospital lay-out and rules. 

2. Four to six weeks in the housekeeping department where the 
work consisted of cleaning, sweeping, dusting, care of bathrooms and 
drains, care of some equipment including linens and furniture, remov- 
ing of stains, disposal of refuse and garbage, and community 
sanitation. 

3. Another 4 to 6 weeks' period in the laundry and sewing room 
where girls mended and marked garments, and made linens and 
garments. They also did hand and machine laundry. 

4. The trainees were then ready for more skilled work. First, many 
went into hospital kitchens, regular and dietary. They learned care 
of kitchen equipment, preparation and cooking of foods, and serving 
of meals in nurses' dining rooms and on trays. This type of experi- 
ence usually lasted 4 to 6 weeks. 

5. The longest period, 6 to 8 weeks, was spent in the nursing depart- 
ment. There duties consisted of assisting with the admission of pa- 
tients; assorting and distributing mail; answering the telephone; 
making beds for convalescent patients ; helping to feed children and 
adult patients; assisting crippled patients out of bed; passing wash 
basins, soap, towels; filling ice bags and hot water bottles (and check- 
ing them with nurses) ; transporting wheel chair and stretcher pa- 
tients; arranging flowers; and stand-by assistance to nurses. If the- 
hospital operated an out-patient department, the youth assisted with 
records, admissions, preparation for clinics, and care of supplies and 
equipment. 

In a hospital employing many youth, it was found necessary to have 
a N YA supervisor to keep records, counsel girls, and see that rotation 
of work was accomplished and supervision good. Of course, each 
girl was given periodic physical examinations. Often meals were 
provided free or at nominal cost during hours of work. 

The intangible benefits of hospital projects were legion. Girls im- 
proved in personal cleanliness and appearance; excellent discipline 
was maintained ; the work, itself, was educational. 

Related training was given by nurses, doctors, public health officials, 
or Red Cross workers. In several instances the nurses' associations 
objected because the related training was of a professional level. A 
change of title often helped; for example, "nutrition" instead of 
"dietetics," "child care" instead of "pediatrics," etc. Girls learned to 
take temperatures and pulses but they never did so for a patient. 

In the early NYA days, hospital projects started off modestly and 
developed into the above many-sided work experience. Resident proj- 
ects were maintained in connection with only a very few hospitals; 
sometimes youth employees in resident centers were assigned to hos- 
X^ital work for part of their stay. 



FINAL REPORT, FISCAL YEARS 1936-1943 



167 



Private employment from hospital projects was high, Hospitals 
themselves, took youth on as nurses' aides, office workers, and assist- 
ants in the housekeeping departments. Other institutions such as 
orphanages or day care centers found this work experience made de- 
sirable employees. Doctors and dentists employed NYA hospital 
trained youth as office assistants. Other youth went to work in 
restaurants and as domestics in private homes. 

Home Economics, Nursery School and School Lunch Projects 

A few State administrators believed that all girls should have some 
experience on homemaking projects, and in these states all NYA girl 
workers were assigned for a short period to such work before reas- 
signment to another work activity. In many States, homemaking 
projects were a catch-all for those who lacked the background for 
clerical work and showed no aptitude for power sewing or hospital 
work. 

Homemaking projects were housed in various ways. Often NYA 
rented houses and the NYA girls painted interiors, finished floors, 
and made or reupholstered some of the furniture and made kitchen 
equipment. Private homes were solicited by local NYA personnel 
for cast-off items, such as washing machines, old car seats for settees, 
rags for rugs, dishes and cooking equipment. The girls sewed cur- 
tains, made dish towe]s from sacks, and improvised as much as pos- 
sible. Equipment ranged from fine electrical machines, occasionally 
loaned by public utilities, to wood, kerosene, and coal stoves similar 
to those used in the homes from which many of the young women 
came. 

Regular household routines were followed in these projects. Girls 
were taught to budget and market. They cleaned, laundered and 
cooked. In a few instances, gardens were planted and cared for, 
produce canned,, and chickens raised. Almost 4 million pounds of 
foodstuffs were produced in fiscal years 1937 through 1940; 4% mil- 
lion quarts of food preserved from 1937 through 1942; and 71,000 
pounds of food dried for preserving purposes. On almost every proj- 
ect, one meal a day was served, and youth paid the costs of the food 
from their own earnings. 

In a few instances, local schools let their home economics rooms 
be used for NYA projects. Often space in local NYA work centers 
was provided, and girls cooked food which youth in the work center 
purchased. For fiscal years 1941 and 1942, NYA girls prepared and 
served more than 6,900,000 meals to youth on non-resident projects. 

Production work was usually sewing. The cost per article pro- 
duced on home economics projects was high. Instruction was given 
in the maintenance and repair of such household equipment as elec- 
tric irons, vacuum cleaners, and washing machines, and in household 



168 



NATIONAL YOUTH ADMINISTRATION 



mechanics, such as simple plumbing repair and upkeep, recondition- 
ing window sashes, rewiring lamps or irons, and repairing electric 
door bells. 

Supervisors with home economics backgrounds predominated in 
homemaking projects. Even when project work was located in hos- 
pitals or other public institutions, better results were obtained when 
there were NYA supervisors to cooperate with institutional instructors. 

Some of the best projects were based on the principle of job rotation. 
For example, a girl worked for two months in a hospital kitchen; 
there she learned food preparation, dishwashing and cleaning. Then 
for an equal period of time, she was assigned to a WPA nursery 
school. Her next work assignment was a sewing project, often pro- 
ducing hospital supplies or remodeling clothes for charitable organi- 
zations. Then perhaps she went back to the hospital laundry for 
another 2 months. 

Concentrated experience in cooking was obtained on school lunch 
projects. Girls entered these projects with few household skills. Often 
their homes lacked equipment for cleaning and had only one or two 
different cooking dishes. 

Often girls were assigned exclusively to school lunch projects, 
usually under WPA. This work was more suited to NYA workers 
than to WPA workers as it was a part-time work activity, unless the 
school was large. Here the home economics teacher in the school 
supervised the work. NYA school students on the school work pro- 
gram often worked with the out-of -school youth on these projects and 
bridged the difficult gap between in-school and out-of-school girls. 
During the fiscal years 1937 through 1942, 123,165,000 school lunches 
were served to school children by NYA employed youth; and NYA 
girls helped serve, usually with WPA workers, another 20.995,000 
school lunches. 

In all states, NYA girls were assigned to WPA nursery schools. 
During the fiscal years 1941 and 1942, NYA girls assisted in 1,653 
nursery schools. The most frequent complaint was that the younger 
women were given the brunt of the hard physical work and had little 
relationship with the children. They cooked, cleaned, laundered, and 
made up cots, but seldom participated in art work, story telling, music, 
nature study, or even dressing and undressing preschool children. 
NYA established only two or three nursery schools on its own. Cost 
of supervision was too high, responsibility too severe, housing and 
equipment too difficult to secure. 

Through the 8 }^ears of NYA, the most frequent suggestion made was 
to train young women for domestic employment. Local advisory 
committees could always get money to back such a project. While 
girls responded to the home economics projects, they usually refused to 



FINAL REPORT, FISCAL YEARS 1936-1943 



169 



take domestic employment. In a majority of States, and in all the 
Southern States, projects were established designed exclusively for 
this type of employment. Well-rounded work experiences were pro- 
vided. Sometimes entire houses were rented, and the final training 
consisted of planning a week's work and executing it without super- 
vision. Certificates of skill were often given at graduation exercises. 
Attempts were made to apprentice girls in private homes at low wages, 
but NYA refused to sanction such a practice. The girls did not object 
so much to the wages offered for domestic service, which seldom ex- 
ceeded $5 a week, as they resented the lack of freedom, the lack of 
privacy as exemplified by the sharing of sleeping quarters with chil- 
dren of the family, and most of all, the low status a domestic holds in 
families. NYA did not attempt to establish standards for household 
employment. 

States which attracted summer or winter tourists established resort 
workers' projects. These States included Michigan, New Jersey, 
Minnesota, Florida, and the New England States. At Dowagiac and 
at Charlevoix, Mich., girls went to resident centers for 4 weeks in the 
spring and received instruction and practice in work as maids, kitchen 
assistants, waitresses, cabin girls, and switchboard operators. Local 
projects in this same field were established at Benton Harbor, Traverse 
City, Grand Haven, and Manistique, Mich. In this State in 1938, 
200 girls took training for resort work. Placement was practically 
100 percent. 

Opportunities for related training in homemaking projects were 
rich. In some States, girls were required to spend twice the sched- 
uled hours on projects to earn the monthly wage because production 
was low. This double-time automatically took care of related train- 
ing. NYA girls received instruction in household safety, hygiene 
and health, first-aid and home nursing. Some stayed after hours and 
used NYA equipment and supervision to make and repair their own 
clothes and the garments for their families. Manufacturers and re- 
tailers objected strongly to any instruction in self-made cosmetics, 
dentifrices, or soap. The most popular related training course was 
etiquette. Girls kept scrapbooks covering such subjects as manners^ 
household decoration, advice to engaged girls, and table service. Im- 
provement in English was welcomed under the name of etiquette. 
Many supervisors used etiquette as a starting point for general educa- 
tional counseling. Improvement in cleanliness and personal appear- 
ance was marked. 

Private employment from homemaking projects was high. Girls 
obtained jobs as waitresses and counter girls, assistant cooks, dish- 
washers, institutional workers, domestic employees, laundry workers, 
demonstrators, and saleswomen. 



170 NATIONAL YOUTH ADMINISTRATION 

Perhaps the greatest value of these projects was in the improved 
home lives of the girls. Many reported changed dietary habits in 
their families. Others regarded the work as good apprenticeship 
for marriage. Girls who had children in their homes benefited from 
the home nursing, child care, laundry, and cooking experience. 

Recreational Assistance 

When NYA started, it was necessary to get large numbers of youth 
to work quickly. Then, as today, playgrounds and recreation rooms 
were understaffed. Public and private agencies welcomed additional 
help, no matter how inexperienced. Supervision was provided by 
cosponsors. 

Youth assisted at schools, at community houses, in story telling 
at libraries, in YWCAs and YMCAs, at Girls' and Boys' Clubs, at 
settlements and churches, in service clubs, in orphanages, at swimming 
pools (Red Cross life-saving certificates were required), in gymna- 
siums and auditoriums, at museums and youth centers. Outdoors, 
they worked on playfields and athletic fields, parks, camps, tennis 
courts, baseball, softball, and soccer fields, beaches and swimming 
pools, public golf courses, picnic areas, play streets and vacant lots, 
and backyards. They also assisted in staging dramatic entertain- 
ments, dancing, puppetry, music, social activities, handicrafts, hobby 
clubs, and pageants. 

The duties of these recreational workers included supervision of 
playground activities, helping with dramatics, dancing, sports, ad- 
ministering first aid, keeping records, physical care of playgrounds, 
distributing and collecting equipment, care of equipment, instruction 
in games, refereeing games, teaching swimming and acting as life- 
guards, or teaching handicrafts. 

Much of the above work was beyond the capabilities and experiences 
of the NYA youth. They knew few sports or crafts, and lacked the 
self-assurance which would give them authority and leadership. 
Often, they stared helplessly while children fought and scrambled. 
Supervision was more often than not totally inadequate. Attempts 
were made to give youth some training, but recreational institutes 
held for even a small number of workers did not build the maturity 
demanded in this work. 

In 1937, youth were gradually withdrawn from many recreational 
projects into other types of work, in which work experience was more 
conducive to private employment, where sponsors could make greater 
contributions of materials, and in which the limited education and 
experiences of the youth were more suited. The projects under 
discussion here do not include the construction and repair of recrea- ' 
tion equipment, which were done in NYA shops and had definite 



FINAL REPORT, FISCAL YEARS 19 36-1943 



171 



manual and machine training values. There were many individual- 
ized recreational projects of which the following is an example. 

In 1939, in Minnesota, NYA was asked to furnish youth for chil- 
drens' summer camps. Eighteen young men worked at a camp 
near Mora, Minn., sponsored by the Citizens' Club, at Lake Waconia 
Camp, run by Pillsbury Settlement, and at a Lake Mille Lacs camp 
sponsored by the Big Brothers' Inc. The campers were selected by the 
organization and were children who could not have paid for camp 
life. 

Arts and Craft Projects 

In the beginning of the NYA program many youth were assigned 
to arts and craft projects, following WPA patterns, and often youth 
were assigned directly to WPA projects. This was due to the limited 
variety of NYA project work. The number of youth assigned to 
these projects dwindled with the years. The Washington office em- 
ployed specialists from time to time in the fields of weaving and 
textiles, puppetry, ceramics, metal working, woodworking, including 
toy repair and construction, photography, making of visual aid ma- 
terials, music, and other fine and applied arts. 

There were two schools of thought in the NYA regarding arts and 
craft projects. One believed that arts and craft should be unpaid 
leisure-time activities; the other thought them legitimate and valid 
project work. While arts and craft projects were carried on, the 
number of youth employed on these projects was so small that the 
program never reached any significant proportions. 

Racial or geographic groups which had traditional skills or talents 
were encouraged to develop them. El Capitan Resident Project for 
Spanish-American girls in New Mexico stressed hand skills and arts. 
Attempts were made to use native materials to develop indigenous 
crafts, such as the palmetto leaves in Florida. 

The following are selected items produced during fiscal years 
1940, 1941, and 1942 on projects classified as arts and craft : 



Arts and craft activities : 

Number of units 
produced 

Metal craft articles 24, 371 

Wood craft articles 185, 303 

Textile craft articles 272,188 

Ceramic craft articles *_ . 161, 172 



Arts and craft activities — Continued. 

Number of units 
produced 

Blueprints, graphs, 

maps, photographic 

prints, etc 1, 161, 626 

Bulletins and catalogs 4, 972, 294 
Other arts and craft 

items 1,917,193 



These items were produced during fiscal years 1937 through 1942. 



At no time did NYA achieve a widespread, high quality arts and 
craft program. Youth were looking for work experience which would 
lead them to economic independence, and they wanted work experi- 



172 



NATIONAL YOUTH ADMINISTRATION 



ence in activities which led to employment in industry or civilian 
services and trades. 

In many homemaking projects, looms constructed in NYA work- 
shops were used for weaving materials by the youth, highest praise 
being given to those creating original designs. Some projects had the 
single work activity of weaving. 

In Kentucky, especially known for mountain handicrafts, all girls' 
and some boys' projects had types of hand work. Traditional patterns 
and designs were followed. If the cosponsor furnished the yarns, the 
products were turned back to the cosponsors. Girls outfitted non- 
resident and resident centers with woven rugs, blankets, and draperies. 
If the girls furnished their own materials, they were allowed to keep 
the articles they made after working hours. Boys were assigned 
to weaving split cane and rush chair seats. These products were 
used in schools, community buildings, public offices, hospitals, and 
•other public institutions. Employment opportunities for hand 
weavers were few. Possible job outlets were in various fabric depart- 
ments in stores, in wholesale and jobber fabric houses, and in textile 
mills and yarn houses. 

Posters and Silk Screen Painting 

Silk screen and poster work was carried on in most States, although 
not extensively. Onandaga County, N. Y., had a typical project of 
this type. Eighteen youths worked in the school building when regu- 
lar sessions were over. Two professors of painting at Syracuse Uni- 
versity and one free-lance artist formed an advisory committee to 
help select youth for this work, to criticise work done, and to assist 
in job placements. Youth drew and painted original pictures for 
posters and, of course, learned letter writing. They then reproduced 
their originals by the silk screen process. Several of the workers 
from this project received jobs in local stores. 

Cosponsors of this type of project were local charitable organiza- 
tions, city and county health departments, schools, and other State 
and local agencies which publicized their programs. 

Photography 

Many youth had inclinations and aptitudes for photographic work. 
The numbers on these projects were small because the cost of equip- 
ment was high. In Portland, Oreg., as an illustration, 20 boys worked 
in a photographic unit equipped to handle news pictures, flash or 
studio, and copy work, including large projection prints, infrared 
and translites. Much of the work was completed in 24 hours or less. 
Two commercial photographers in Portland formed an advisory com- 
mittee, reviewed all work done, and assisted in finding jobs for some 
of the boys. 



FINAL REPORT, FISCAL YEARS 1936-1943 



173 



Cosponsors of photographic projects included the U. S. Biological 
Survey, the IT. S. Customs, the Bonneville Dam Administration, and 
bureaus of municipal research. Cosponsors provided the materials, 
while NYA supplied equipment and labor costs. 

Toy Construction and Repair 

Every State reported toy making and repair. In many instances, 
it was a pre-Christrnas activity in wookworking shops. Charitable 
agencies collected broken and discarded toys for NYA youth to repair 
and paint. Much new equipment such as blocks, doll beds, and small 
pieces of furniture was made for WPA nursery schools. In some 
localities, toy-lending libraries for underprivileged children were 
NYA-furnished and maintained. 

Making of Visual Aids 

Rural schools needed visual aid materials and came to NYA for 
them. One West Virginia project is typical. In Kenova, 11 girls 
gathered, mounted, titled, and packaged posters and pictures on 
health, safety, recreation, and State and national history. The board 
of education sponsored the project, while the Woman's Club of Kenova 
served as an unofficial cosponsor and assisted in gathering material 
needed. The city donated a work room in the city hall. 
Ceramics 

Occasionally, separate ceramic projects were established, but more 
frequently they became a part of a general handicraft project. At- 
tempts were made to discover and test suitable native clays. In Kansas, 
youth designed, shaped, decorated, and baked pottery table and 
kitchenware for NYA resident projects in several States and for 
Kansas State institutions. Sample dishes were sent to Washington 
and criticized for utility and beauty of design, durability, and general 
practicality and technique. 

At the Turtle Mountain School in North Dakota, two Indian girls 
were assigned to work in pottery and the school furnished supervision. 
The Department Office of Indian Affairs of the Department of Interior 
sponsored this project. 

Music 

NYA music projects were operated even while employment in this 
profession was at a low level. Music was both a project and a leisure- 
time activity. NYA orchestras and choral groups were formed in a 
number of States. All resident projects had a music activity. In or- 
ganizing a NYA orchestra, the following steps were taken : Securing 
of sponsorship, usually the city; provision of NYA funds for scores, 
some instruments, and equipment such as stands ; securing a conductor, 
either by a small payment for his services (about $125 a month) or by 



174 



NATIONAL YOUTH ADMINISTRATION 



arrangement through the cosponsor; payment of youth wages for 
rehearsals and performances. 

Performances were given at municipal parks and halls. In the fiscal 
years 1941 and 1942, NYA orchestras gave 3,976 performances. Youth 
played for dances given by quasipublic organizations or schools. Often 
radio time was secured for broadcasts. With the approval of James 
G. Petrillo, president of the American Federation of Musicians, a 
series of NYA musical broadcasts was given, featuring musical con- 
tributions of various racial groups. These programs were broadcast 
on a Nation-wide hook-up from a dozen different cities and short- 
waved to South America. 

The District of Columbia established music activities for Negro 
youth on a recreational basis with no pay. Outstanding local Negro 
musicians, the musicians' union, and the Federal Music Project of 
WPA helped to plan the project. A supervisor and assistant were 
employed ; the youth played the instruments required for a swing band. 
Instruments were acquired through Surplus Commodities and by di- 
rect NYA purchase. The program consisted of individual instruction, 
group instruction, and ensemble playing. This entire group played 
at public gatherings for which no admission was charged. 

Other Fine Arts 

Almost nothing was done on NYA projects in painting or sculp- 
turing, except as a leisure-time activity. Puppet making and manip- 
ulation were part of some NYA arts and craft projects, but not many. 
This was usually on a recreational basis. NYA was forbidden by law 
to establish, maintain, or participate in theater projects. A few stage 
craft projects were operated, such as the one at Stevens Point, Wis., 
where eight youth worked at the Central State Teachers College de- 
signing stage sets, operating and repairing stage lighting, and repair- 
ing theatrical props. 

Library and Museum Projects 

Official reports show that NYA youth repaired or renovated over 
8,900,000 library books during the fiscal years 1937 through 1942, and 
cataloged more than 1,500,000 library books in the 2 years 1941 and 
1942. Every State had youth employed in public libraries; supervi- 
sion was undertaken entirely by cosponsoring libraries. NYA 
stipulated that the work performed must be more than clerical. Con- 
sequently, girls and boys issued and received books, cataloged and in- 
dexed, and performed practically all library services. 

In the South and in Michigan, NYA organized and ran traveling 
libraries, sometimes in trailers and sometimes in cars. Eural homes 
and schools which had no access to libraries were able to get new books 
every week or two. 



FINAL REPORT, FISCAL YEARS 1936-1943 



175 



In Box Elder County, Utah, NYA youth worked in 25 rural libra- 
ries. At Clinton, Minn., the American Legion turned over to the 
NYA an abandoned railroad car which had been used as a clubhouse. 
NYA youth rebuilt and furnished this as a library. The ground 
around the car was NYA-landscaped. 

Hundreds of thousands of books were repaired and rebound by 
NYA youth. Often city-wide collections of books were made. Ex- 
perts discarded undesirable items and NYA reconditioned the rest 
to add to library shelves, which received few new books in the depres- 
sion years. In Schenectady, N. Y., milk delivery trucks and wagons 
collected books from homes and turned them in to the NYA. 

After June 15, 1939, youth were not allowed to repair public school 
text books. Publishers of text books had objected strenuously to this 
work claiming that outmoded, educational material kept in circula- 
tion impeded educational progress. This prohibition did not apply 
to school or public library books. 

One of the most extensive library projects was located at the County 
Library in Greeley, Colo. In the basement of the building was a 
large NYA shop where youth made and repaired book shelves, files, 
and cabinets, magazine and newspaper racks, and all types of physical 
library equipment. The county furnished materials and some super- 
vision. Girls and boys worked in every library department. The 
county established small branch units in other towns in the region, 
often in vacant stores or offices. These branch libraries were entirely 
staffed by NYA youth trained in the Greeley Library. NYA super- 
visors transported these youth to and from their work. 

NYA youth manufactured and repaired Braille books for the blind. 
In this work, it was necessary for them to master Braille and they 
often taught this to the blind. 

Although library projects did not lead often to employment in 
large libraries where specialized training was required, a few youth 
did secure low-paid jobs in small communities. Others required some 
manuual dexterity in book repair. In small communities where em- 
ployment outlets were few, library projects served as a constructive 
work-experience. 

Many States had scatterings of youth working in museums, not as 
custodians, but as guides, assistants in mounting and casing exhibits, 
or catalogers. NYA youth cataloged 1,123,000 museum articles in the 
fiscal years 1937 through 1942, and prepared or renovated 361,000 
museum articles. NYA youth assisted in organizing museums for 
grade and high schools. These were usually nature exhibits of local 
flora, fauna, and historical items. Supervision of these projects was 
undertaken entirely by the school staffs. 



176 



NATIONAL YOUTH ADMINISTRATION 



Research and Subprojessional Projects 

All research, statistical, and survey projects required the approval 
of the Statistical and Research Coordinating Committee in Washing- 
ton. These projects included research on local history, tax records, 
delinquency and parole records, traffic and safety programs, biologi- 
cal and agricultural and experimental assistance, and health surveys. 
Youth with better than average educational backgrounds participated 
in this work. In Wisconsin at the General Mitchell Airport, NYA 
out-of -school youth measured air velocities at various altitudes. This 
work required thousands of problems in trigonometry. It was val- 
uable for future pilots and aviation mechanics. In several States 
youth assisted in aerial survey mapping, drafting, computing, photo- 
graphing, and reproducing by photostat, blue print, silk screen, and 
dermatype with mimeographing machines. 



• VII ' 

Out-of-School Work Program: Resident 
Projects 

Resident projects were first developed to offset the difficulty of 
reaching small groups of youth widely scattered in rural areas. 
Through this means, youth from agricultural areas were brought to- 
gether and housed at the project site. 

In 1938 resident projects became a prescribed development of the 
out-of -school work program. A program of work camps for needy, 
unemployed young women had been in operation during fiscal years 
1936 through 1938, when they were discontinued in favor of the pro- 
gram of resident projects for both young men and women. 

National provisions governed the initiation and operation of resi- 
dent projects, and each project had to be approved by the Washing- 
ton office before it was placed in operation. 

From a modest beginning, NY A had by the end of its program an 
extensive, efficient, and varied Nation-wide resident project operation. 
This chapter presents a brief summary of the work camps for unem- 
ployed women and a description of resident projects, their significance 
to the youth, the extent of the work performed, their management, 
and their leisure-time activities. 

Work Camps for Unemployed Young Women, Fiscal Years 

1936-38 

In the summer of 1934, the Workers Education Section of the Fed- 
eral Emergency Relief Administration established work and educa- 
tional camps for unemployed women. Early in 1936 this program 
was transferred to NYA, which organized the camps for needy, un- 
employed, out-of-school young women between 18 and 25 years of 
age, with FERA providing supervision during the early months. 
^NYA then took full responsibility for the operation of the camps. 
Forty-five camps, with about 3,000 girls, stretched across the country. 
The cost of operation was too high in relation to the size of the camps, 
and in the fall of 1936, the number of camps was decreased to 29 in 11 
States, with 3,500 girls employed, an average of about 120 to a camp. 
In 1937, the number of enrollees dropped to 1,800. These were dis- 
tributed in 28 camps in 21 States. Seven States had two camps each. 
Five States had camps for Negro girls; four States had camps tor 

177 



178 



NATIONAL YOUTH ADMINISTRATION 



both white and Negro youth. Five camps were operated on an inter- 
State basis; the others selected only girls from within the State. 
Because funds for transportation to and from camps were not avail- 
able, and because earnings were so low that girls could not send money 
home and could scarcely purchase their minimum personal require- 
ments, difficulties in recruiting young women were experienced during 
the last year of operation. 

Camp sites were examined for safety and health ; most of the camp 
facilities were donated ; only a few were rented at low monthly rates. 
Food was adequate, medical attention good, with a full-time nurse and 
part-time doctor in attendance at each camp. Preliminary medical 
examinations were given in the home communities and final physical 
examinations provided at the camps. Money for emergency hos- 
pitalization had to be met from private sources. NYA personnel 
for each camp consisted of an administrative director, work and rec- 
reation supervisors, and personal counselors who assisted in the 
selection of girls. 

Enrollees worked periods not exceeding 8 hours a day, 40 hours a 
week, or 70 hours a month. Wages not exceeding $25 a month were 
paid, from which cost of subsistence was deducted. NYA required 
that each girl have a minimum of $5 in cash residue each month after 
expenses were met. The cost per enrollee ranged from $40 to $45 a 
month, less than half the CCC camp costs. The camps were open 
year-round, and a girl staj^ed an average of 6 months. 

The work content in these camps was always meager and the 
educational program was limited. The most varied work program 
consisted of the making of hospital supplies by hand and sewing 
machine, making of Braille books, assembly of visual aids for teach- 
ing purposes, some forestry service, clerical work, making of small 
recreational equipment for WPA and hospitals, construction of high- 
way signs, making and repairing toys for nursery schools, making 
of household supplies for WPA visiting nurses and housekeepers, as 
well as household supplies for public institutions. The flow of mate- 
rials to these camps was uneven, and production was consequently 
spotty. 

Realizing the thinness of the camp life, a five-point curriculum was 
recommended by the national office : 

1. Classes in English, with opportunities for simple writing and 
speaking, and classes or discussion groups on the social and economic 
problems of the communities from which the girls came ; 

2. Individual adjustment, counseling, and vocational guidance ; 

3. Household management ; 

4. Health education ; 

5. Recreation and arts and craft. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



179 



In the fiscal year 1938, NYA officials questioned the advisability of 
continuing these camps. The number of enrollees had declined; 
useful public work was difficult to obtain; financial compensation 
proved unsatisfactory to the girls; specific training and general 
education advantages were difficult to provide. The chief values 
consisted in improved physical and mental health and subsequent 
employability. In October 1937, all camps were terminated. For 
the 2 years the average per-capita weekly cost was $10, including 
approximately $2 for youth wages. 

These camps provided a valuable experience in setting up the sub- 
sequent NYA resident centers. NYA officials were prepared to meet 
the problems existent in the administration of a combined work and 
living situation involving large numbers of youth. In initiating the 
first resident centers, NYA determined to establish them near to or in 
cooperation with educational institutions which permitted efficient 
operation as to staff and equipment. Later, resident projects also 
were located near towns or cities where better project work was avail- 
able, related training was more diversified, and normal contacts with 
the community were possible. 

Resident Projects 

The work camps for unemployed young women were the fore- 
runner of resident projects. In 1937, the first work centers for boys 
were initiated and were primarily agricultural, with 25 or 30 boys 
employed who worked farm land and raised crops which were turned 
over to local welfare agencies. The first girls' centers seldom had 
more than 25 girls living together at one time, and the work performed 
by them was usually handicrafts and sewing, with home economics 
training. 

There were a few large centers established in the fiscal year 1938, 
among which was the Quoddy resident project that provided the first 
large industrial-type project. On the basis of the success of these 
industrial-type projects, the Washington office encouraged more ex- 
tensive development of this type in every State. These were usually 
located as near as possible to centers of employment opportunities 
where youth could see industry working and where industrial repre- 
sentatives could assist in planning production programs. 

A typical resident project of the National Youth Administration 
employed from under 25 to more than 200 young people, who lived 
together at their job site and did useful work for wages. Their 
quarters were dormitories which were specially planned and con- 
structed or remodeled to provide suitable living accommodations for 
the required number of young men or young women. The young 
people usually prepared their own food, under the supervision of 

566597—44 13 



180 



NATIONAL YOUTH ADMINISTRATION 



competent cooks and dietitians. They paid for their food, lodging, 
and medical care out of their earningsat the center. 

The youth employed at resident projects spent a given number of 
hours each week working under the supervision of competent foremen 
and utilizing modern production methods similar to those which pre- 
vailed in private industry. A health examination prior to entrance 
on the project, and remedial services, provided through arrangements 
with local physicians and medical officers, as well as the best safety and 
sanitation practices contributed to the physical well-being of the 
youth employees. 

At the typical NYA resident work center, the youth employees, 
through the cooperation of local school systems, had the opportunity 
to attend classes and to carry on educational activities related to their 
NYA work. Library and recreational facilities were also available 
for the use of the young people, during periods when they were not 
at work. 

By December 1940, there were 595 resident projects in operation 
located in 45 States and Puerto Rico, employing a total of 33,780 young- 
people, of whom 14,160 were young women. The average number of 
youth employed a month on resident projects was 27,685 in fiscal year 
1940, or 10.5 percent of the total employment. 

In fiscal year 1941, the average monthly employment rose to 33,531, 
which was 10.3 percent of the total average monthly employment for 
that year. In the fiscal year 1942, the percentage of resident youth 
employed increased to 16.1 percent of the average monthly employ- 
ment of all NYA youth, a total of 38,607 in resident projects. There 
were 475 resident centers operated during the year. There were 
24,074 youth in 199 industrial-type projects operated under the defense 
program, which was 28.2 percent of all the youth employed under the 
defense program. On the other hand, the average monthly employ- 
ment of resident youth under the regular program was only 14,533 in 
302 projects, and 9.4 percent of those employed by NYA on this 
program. 

In fiscal year 1943, the percentage employment on resident projects 
was 37.1 percent (29,160) of all youth employed on war production 
training projects. All resident projects which had not developed 
work programs contributing directly to defense and war production 
had been closed by the beginning of that fiscal year. The largest 
number of resident projects operating during the last year was 256. 

Through an arrangement with local school systems, young people 
employed on NYA resident projects were given the opportunity to 
supplement the practical experience gained on the job with classroom 
instruction in technical theory which had a direct bearing on the type 
of work they were doing. For example, young people employed on 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



181 



automotive projects might study the theory of internal-combustion 
engines in their classes. They might receive instruction in shop 
mathematics, business English, or similar subjects. NYA youth at- 
tended these related training classes on nonpaid time, except under 
the war production training program in fiscal year 1943. During 
fiscal years 1941 through 1943, vocational teachers were made avail- 
able to NYA youth under the defense funds appropriated to the U. S. 
Office of Education for the establishment of preemployment courses to 
train persons for employment in defense occupations. The local 
school systems were reimbursed for costs of classroom instruction to 
NYA out-of -school youth on the resident as well as local projects. 

As far as was consistent with a well-organized production program, 
NYA gave individual attention to the development of resident youth by ■ 
try-outs in a number of types of work. For example, young people 
might be employed in automotive mechanics for several months and 
then be transferred to a woodworking, a metalworking, or a con- 
struction project. In this way young people were able to discover- 
through a try-out under actual working conditions the types of jobs 
for which they were best fitted by talent and inclination. This system 
enabled the National Youth Administration to perform an important 
vocational guidance function as a byproduct of its work experience 
and production activities. This system made for vocationally well- 
adjusted workers. 

All work done by young people employed on NYA resident projects- 
was cosponsored by some public agency, and all the products were- 
disposed of through public agencies and institutions. For example,, 
young people produced playground equipment for public park boards, 
hospital supplies for public hospitals and clinics, radio apparatus for 
State and municipal police networks, and various metal and mechanical 
objects for city governments, State governments, and national defense 
and war agencies of the Federal Government. 

Applications for resident centers, submitted to Washington for ap- 
proval, provided complete plans for any construction contemplated 
and included detailed facts about the following : 

1. Methods of selecting youth. — Educational requirements, if any; 
provisions for physical examinations; explanation of program to 
parents and youth ; and provisions for transportation. 

2. Costs. — Cost of materials to the cosponsor and NYA; super- 
visory costs; subsistence costs; cash payments to youth; and number 
of hours in pay status per month; hourly wage rate; total monthly^ 
earnings ; and total youth per capita cost per month. 

3. The 'program. — Work activities; related training; vocational 
guidance ; and recreational activities. 

4. Social life and adjustment. — Relationship of youth to regular- 



182 



NATIONAL YOUTH ADMINISTRATION 



students when the project was conducted with an educational institu- 
tion; provision for group government; plans for cooperative living; 
and other cooperative enterprises ; plans for discussions of such mat- 
ters as citizenship and social and economic problems. 

Safety regulations were rigorous, and no resident project could be 
started until the physical facilities had been inspected and approved by 
a representative of the State safety consultant of the WPA. These 
embraced water supply, sewage and sanitation, and structural condition 
of buildings. Later, NYA safety engineers passed on all resident 
centers. 

Resident work centers were successful from the beginning. In 
some States it was difficult to find cooperating schools, and in others 
they were not situated where it was geographically convenient for 
youth to come. Resident projects were also established near industrial 
centers so that youth might apply for work easily and employment 
offices might have first-hand knowledge of the work and training in 
resident centers. Such resident projects might be just houses where 
NYA girls lived and did service work in hospitals, libraries, or public 
offices, and sewing and maintenance of the center; or they might be 
abandoned college campuses; or complete facilities, NYA built and 
managed. 1 

There were a few mobile units, particularly in Illinois and Arkan- 
sas, where youth set up camps to live in while they worked. When the 
job was done, they packed up their tents or portable shelters and 
moved to the next site. 

Some part-time resident centers were established where youth lived 
and worked for 2 weeks and then went home for the next 2 weeks. 
Until fiscal year 1941, a substantial percent of the resident centers 
were part time, and practically all of these were girls' projects. On the 
whole, the full-time resident project had much more continuity of 
study and group-living experience and was judged more valuable to 
the youth. 

When a resident center was large enough to accommodate more youth 
than could be recruited in the State, and when the equipment and 
supervision were particularly superior, youth from surrounding 
States were selected and sent to this project. These out-of- State 
youth had usually been in a resident center in their own State, where 
their particular abilities warranted continued development in a resi- 
dent project offering specialized work training. 

In many resident centers, student councils and self-government or- 
ganizations were formed and youth elected their own representatives. 
Youth committees were named to handle complaints or suggestions on 
the work, related training, food and shelter, health, and every other 
project activity and routine— sometimes including Government pro- 



FINAL REPORT^ FISCAL YEARS 1936-1943 



183 



curement of supplies and equipment. Through the self-government 
activities, youth gained much needed training for citizenship. Few 
supervisors were expert in stimulating youth self-government, and 
more often than not supervisors were not enthusiastic about self-gov- 
ernment and, in particular, grievance committees. Self-govern- 
ment on paper was often perfect. The real test was whether or not 
it was superimposed by supervisors as a gesture toward self-govern- 
ment or motivated and carried along by the youth. 

During March and April of 1940, 50 officials of the United States 
Army, including Quartermaster and Medical Corps officers, inspected 
54 NYA resident projects employing over 5,800 youth. They made 
comparative ratings on their standards in the maintenance and ade- 
quacy of living quarters, mess halls, kitchens, shop facilities, manage- 
ment, and health. Thirty-six of the projects were for boys, 8 for 
girls, and 10 enrolled both sexes. This inspection gave these 54 resi- 
dent projects an average rating of approximately 75, on the basis of 
a maximum rating of 100 points. The Quoddy project received the 
highest rating — 91.3 points. Other selected projects were rated as 



follows : 

Port Townsend, Wash 91. 2 

Woodstock, N. Y 90. 2 

Nepaug Village, Conn _ 89. 2 

The four projects receiving lowest scores were 

Murray, Ky 50.9 

Clarkesville, Ga 52.1 

Elmira, N. Y 58. 1 

Princess Anne, Md 58. 4 



The findings of this inspection were placed before State administra- 
tors and project managers by the Washington office, with instructions 
that minimum standards as recommended by these military officials 
were to be maintained, or the resident project closed. 

Descriptions of four selected resident projects are given in the 
following pages. These are not representative of the average resi- 
dent center. In fact, they were among the best in NYA. Most of 
the other resident projects were much smaller, with less physical plant 
and shop equipment. 

1. The Weiser resident project, located at Weiser, Idaho, illustrates 
a resident project set up on an agricultural basis for rural youth. 
It was located in a rural area, and youth from agricultural areas 
were brought there for work and training related to farm or agri- 
cultural employment. 

2. The Shakopee resident center, located at Shakopee, Minn., was 
also in a rural area and accommodated as a rule youth from rural 
areas in Minnesota. Less work directly related to agricultural em- 



184 



NATIONAL YOUTH ADMINISTRATION 



ployment was done at Shakopee than at Weiser, and the emphasis 
was to provide work experience which led to industrial employment 
or employment in small communities. 

3. The Quoddy resident project at Passamaquoddy, Maine, was in 
a remote but nonagricultural area. The unusually fine physical plant 
facilities and equipment available at the Quoddy project enabled 
the development of work activities ranging from ground improve- 
ments to specialized mechanical and shop operations. This resident 
project was entirely for the purpose of preparing youth for urban 
employment, and youth, as a rule, came from urban areas. 

4. The South Charleston project, located in West Virginia, was 
for both rural and urban youth, and because of the shop facilities 
available at the ordnance plant where it was located, gave excel- 
lent work experience in shop work in preparation for industrial 
employment. 

Weiser Resident Project, Weiser, Idaho 

The Weiser resident project, started in the fall of 1936, was a 
consummation of cooperative planning among agencies concerned 
with the problems of youth — the Weiser Board of Education, the 
Idaho State Board of Vocational Education, the State WPA division 
of education and recreation, and the National Youth Administration. 
The superintendent of the Weiser city schools was the cosponsor rep- 
resentative in working out details of the project operations, work, and 
related training. 

The local school board had secured title to the campus grounds and 
buildings of the former Intermountain Institute, which included TOO 
acres of agricultural lands, two dormitories, an administration build- 
ing, library, gymnasium and swimming pool, and various farm and 
shop units. This property was made available to the NY A for a 
work experience resident center for unemployed Idaho youth. 

Until the fall of 1937, the project was operated as a girls' work 
camp. Girls did indoor and outdoor painting and cleaning and 
furnished* the dormitories. Inspired by the results of this early ex- 
perience, the combined cosponsorship expanded the program to in- 
clude boys as well as girls and opened the revised project in July 
1938. The project remained in operation until the end of the NYA. 

Under the coeducational program, the Weiser project provided for 
a 1-year work experience program in agriculture and home economics, 
with related training courses planned by the State board of voca- 
tional education. 

During the next 2 years the work and related training were ex- 
panded to include the following : 

1. Agricultural division. — Livestock, poultry, soils, dairying, land- 
scaping, farm business, farm mechanics, farm carpentry. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



185 



2. Construction division. — Carpentry, concrete work, plastering, 
electrical wiring, plumbing, steam heating, roofing, painting, draft- 
ing, and cabinetmaking. Dormitories belonging to the original plant 
were refinished and furnished. The heating plants was reconditioned ; 
farm buildings were renovated and made serviceable. A new shop 
was constructed ; also a new dormitory was added which had a capac- 
ity of 150 youth. By the fall of 1940, a large dining hall, with a 
maximum seating capacity of 600, had been built by the youth. With 
this increased space, the project was able to accommodate 320 men 
and 80 women workers. 

3. Mechanics division. — Auto mechanics, sheet metal, machine shop, 
electrical wiring, welding, metal cutting, and forgery. 

4. Commercial foods division. — Meat cutting, cooking, butchering, 
catering, waitressing. 

5. Clerical division. — Typing, shorthand, business English, mimeo- 
graphing, office procedure. 

6. Homemahing division. — Dressmaking, child care, home eco- 
nomics, home care, and related activities. 

With the establishment of defense shops during 1940-41, the Weiser 
location qualified on four types of units : Machine shop, sheet metal, 
welding, and electrical. During fiscal year 1943, the work training 
program was adjusted to conform with wartime needs for technical 
skills. Auto mechanics, radio, pipe fitting, patternmaking, and 
foundry were added as occupations essential to war. Such activities 
as nurses' aide, commercial foods, agriculture, woodworking shop, 
and construction — which were not rated as essential war occupations — ■ 
were discontinued. The required hours a month were increased to 
160, which included both working time and related instruction. Dis- 
cipline, health, and group cooperation were stressed as rudiments in a 
work-learning program which proved mutually beneficial to all 
concerned. 

Safety practices and education Were emphasized. State laws gov- 
erned the minimum requirements for fire prevention, working condi- 
tions, including lighting, ventilating, and sanitary facilities. Safety 
guards, protective clothing, goggles, correct handling of tools, and 
the proper operation of machines were a constant part of the daily 
routine as well as subjects for discussion at frequent conferences. Reg- 
ular inspections were the basis for maintaining minimum safety 
standards. 

Additional activities which were considered as extracurricular in- 
cluded music, youth self-government, athletics, and recreation. 

Sbakopee Resident Project, Shakopee, Minn. 

The Shakopee project was located on the Minnesota River in the 
town of Shakopee. Operated first as a transient camp by FERA and 



186 



NATIONAL YOUTH ADMINISTRATION 



WPA, the Minnesota NYA converted it to a resident project for youth 
in April 1938, and it remained in operation until the NYA was dis- 
continued as an agency. Cosponsoring agencies were the State high- 
way department, State department of education, State emergency 
relief administration, State department of conservation, city of 
Shakopee, and Shakopee park department. 

The camp was substantially constructed and included housing units, ; 
warehouses, recreational buildings, mess halls, and all necessary 
facilities for a self-sustaining community. 

At first, the primary purpose of the project was not to directly pre- 
pare young men for private employment, but to make possible explor- 
atory work experiences in various fields which might lead to individual 
self-maintenance and might better qualify young men for worth-while 
home and community life. Approximately 100 young workers were 
employed on a work program to restore an old grist mill and convert 
an old tavern into a museum. Both structures had historical signifi- 
cance as landmarks of pioneer days. Gross per capita monthly 
earnings were $29.90. Of this amount $20 went for subsistence, hos- 
pitalization, medical, and other services. 

A system of youth self-government simplified administration and 
provided valuable experience through delegated responsibility. It 
also demonstrated to many youth away from home for the first time 
the rudimentary principles of group association and accomplishment. 
The constitution and bylaws provided for the election of a youth 
mayor, a councilman from each dormitory, and one at large. The 
three standing committees called themselves (1) indoor and outdoor 
activities, (2) social activities, and (3) canteen. Eventually, the 
youth council was asked to review procurement procedures according 
to which their subsistence articles were purchased. 

By fiscal year 1940, courses had been started in drafting, aviation, 
office practice, printing, watch repairing, cooking, and dry cleaning. 
In December 1939 there were 154 youth employed. More than 80 
percent came from Rural Minnesota areas ; 44.3 percent had less than 
high-school education. In November 1940 employment had risen to 
195, 70 of whom were registered under the Selective Service Act. 

By June 1941 shop units had been constructed and were in operation. 
A woodworking shop, fender and body shop, shoe shop, and aviation, 
drafting, and electrical shops were added. Other shops were set up I 
a few months later to give youth work experience in machine shop, 
welding, radio, and sheet metal — cosponsored by the city of Shakopee. 

By agreement with the State department of education, related train- 
ing was offered under supervision of the Shakopee public schools. 

The types of shop-work experience prescribed for NYA youth work- ' 
ers were as follows : 



FINAL REPORT. FISCAL YEARS 19 36-194 3 



187 



Machine shop. — General machine shop practice on lathes, milling 
machines, shapers, drill presses, power saws, punch presses, grinders, 
filing machines, contour saws, saw files, and heat-treating equipment. 

Welding shop. — General welding, arc, gas, and forge. 

Sheet-metal shop. — General sheet-metal shop, practice on headers, 
folders, crimpers, heading and forming machines, cutters, groovers, 
reamers, punch presses, spot welders, shears. 

Radio shop. — Installation, service, repair, and manufacturing of 
communication transportation equipment and receiving sets. 

The following are examples of production work and the agencies for 
which products were made: 

Articles and services 

Machine shop. — Trusses, transmit- 
ter panels, hoists, motor stands, 
vises, hand tools, dies, replace- 
ment parts, pumps, pulleys, 
shafts, gears. 

Welding and forge. — Jail-cell 
blocks, prefabricated trusses, 
motor test stands, shop benches, 
fire escapes, portable grand- 
stands, fireplaces, truck bodies, 
motor-vehicle repair work. 

Sheet metal. — Farm storage tanks 
and silos, fish rearing and feed- 
ing tanks, pails and other recep- 
tacles, filing cabinets, air ducts 
and ventilators, water tanks. 

Radio. — Short-wave transmitters 
and receivers, indoor communi- 
cation systems, public-address 
systems, hearing aids. 

Quoddy Resident Project, Passamaquoddy , Maine 

In many respects Quoddy was the model resident project. It was 
the first to bring youth together from more than one State, and it was 
the major testing ground for the correlation of the NYA youths' 
work experience to industrial requirements. Careful selection of 
youth was made, aptitudes were determined, and work was assigned 
to the youth in accordance with their abilities. There was follow-up 
by local committee members on the progress of the youth after they 
had left Quoddy for other employment. 

In June 1937, at Passamaquoddy Bay, Maine, the NYA took over 
the plant, complete equipment, and living quarters in the model vil- 



Disposition 

U. S. Bureau of Fisheries, city of 
Shakopee, Soil Conservation 
Service, Minnesota Highway 
Department, NYA projects. 

Municipalities, public schools, 
park departments, Minnesota 
Highway Department, U. S. 
Bureau of Fisheries, State re- 
formatory. 

U. S. Farm Bureau, U. S. Bureau 
of Fisheries, Minnesota Depart- 
ment of Education, U. S. For- 
estry Service, Soil Conservation 
Service, State reformatory. 

Minnesota Highway Department, 
Shakopee High School and 
other schools, park boards, re- 
lief agencies, State reforma- 
tories. 



188 



NATIONAL YOUTH ADMINISTRATION 



lage built in connection with the abandoned tide-harnessing project. 
At no other site did NYA have the advantages of newly constructed 
shops and living quarters with excellent equipment. The project 
started with 250 young men of proven capabilities, selected by local 
committees of private citizens from NYA projects throughout the 
New England States, to work at the project for a 5-month period. 
The number was increased later to 500 white and Negro youth, selected 
from the entire country. 

The division of testing and counseling arranged with each youth 
a sound program of exploratory work experience, after mental, me- 
chanical aptitude, manipulative, and educational achievement tests 
had been given. During the entire period of project employment, 
youth received regular guidance and counseling service. 

Records of each youth's progress were kept, and upon his leaving 
the project, copies were given to him, the local NYA office in his com- 
munity, and his local selection committee. 

The Quoddy project, like many NYA resident centers, emphasized 
the values derived from self-government. Early in the project de- 
velopment, youth formed a self-governing framework. As soon as 
reasonably possible, following the arrival of each new group, an elec- 
tion was held. Youth were elected to offices as mayor, councilmen, 
sergeant at arms, director and secretary of public relations, and other 
offices with special responsibilities. This self-government body met 
once a week to consider suggestions for improvement of work or living 
conditions, to mete out punishments to youth who had disobeyed regu- 
lations, and to make general rules for group work and living. Youth 
committees were appointed, each of which had an adviser from the 
NYA senior personnel. 

Leisure-time activities at Quoddy were diversified. Intra- and 
extra-mural sport competitions were held the year round. Youth 
published a bi-weekly news organ called the Quoddy Eagle, which 
reported on work schedules, recreation activities, and personal items. 
The dramatic and glee clubs and the orchestra put on variety shows. 
Hobby clubs were self-organized in photography, radio, leathercraf t, 
archery, hunting, aviation, and sketching. Excursions on land and at 
sea were conducted every 2 weeks. 

The library at Quoddy, with the widest range of books of any NYA 
project, was open from 8 a. m. until 10 p. m. 

The health program was equal to or higher than normal require- 
ments. Youth were given complete physical examinations, remedial 
treatment, and hospitalization in case of illness. Sanitation and 
safety were constantly emphasized. 

Youth were given work experience in three or more mechanical 
trades. On the basis of their work records, NYA authorities and 



FINAL REPORT, FISCAL YEARS 1936-1943 



189 



home-town sponsors assisted youth in obtaining private employ- 
ment. The project provided types of work and fully equipped shops 
as follows : 

Welding. Laboratory. 

Auto mechanics. Commercial art. 

Mechanical drafting. Welfare work. 

Carpentry. Recreation. 

Plumbing. Medical assistance. 

Warehouse operation. Library work. 

Surveying. Cafeteria work. 

Reproduction (photography. Ground improvement, 

office printing, photostat- Maintenance and repair of 

ing). water, heating, and sew- 

Map making. age system. 

In December 1940, Quoddy started its defense production by machin- 
ing small parts for the Navy Department One-half of each day was 
spent by the youth in production work either in a shop or on ground 
maintenance. The remainder of the day was devoted to related train- 
ing classes. General courses in government, hygiene, and industrial 
counseling also were offered all youth. English and mathematics 
were optional but very popular with Quoddy youth. 

A total of 8,000 youth were given work experience and training at: 
Quoddy. Ten percent of the enrollees were junior leaders, or class 
A workers. These were boys who had worked and lived at Quoddy 
for an initial 5 months and who, because of abilities and performance, 
were allowed to continue on the project in more responsible jobs. They 
assisted foremen and coordinators in instructing new youth, and their 
earnings were $3 a month more than the other NYA youth, or class B 
workers. 

Until the beginning of fiscal year 1943, Quoddy was not coeduca- 
tional but at that time 100 Maine girls were selected to do clerical and 
shop work. 

In depression years private employment was difficult to secure for 
those youth who were prepared sufficiently well to take average jobs 
in industry, although local sponsors tried to locate jobs for them when 
they returned home. With the advent of the defense and war periods^ 
the requirements of industries and the military services absorbed the' 
youth with work experience. The following are some of the employers 
of NYA youth prepared for defense occupations: 

Bradley Field A i r Depot, Bell Aircraft, Buffalo, N. Y. 

Windsor Locks, Conn. Bethlehem Shipyards, Bing- 
Rome Air Depot, Rome, N. Y. ham, Mass. 

Patterson Field, Fairfield, Glenn L. Martin, Baltimore, 

Ohio. Md. 



190 



NATIONAL YOUTH ADMINISTRATION 



Brooklyn Navy Yard, Brook- 
lyn, N. Y. 



South Portland Shipyards, 
South Portland, Maine. 



Douglas Aircraft, Santa Mon- 
ica, Calif. 



Todd Bath Shipyards, Port- 
land, Maine. 



Boston Navy Yard, Boston, 
Mass. 



Portsmouth Navy Yard, 
Portsmouth, N. H. 



Curtiss-Wright, Buffalo, N. Y. 



Pan-American Airways, New 
New York City. 



General Electric Co., Lynn 
Mass. 



South Charleston Resident Project, South Charleston, W. Va. 

In November 1938, NYA made arrangements with the Navy De- 
partment to take over two small unused buildings, each approximately 
130 by 300 feet in size, at the South Charleston Naval Ordnance Plant. 
The first youth were employed in December and were set to work 
moving obsolete patterns and other items stored in the buildings, 
cleaning and repairing them for installation as equipment machinery 
for the work project. By February 1939, 250 NYA boys were living 
and working there. Peak enrollment was reached in January 1943, 
when 825 youth were employed. Girls also were enrolled and did 
clerical and shop work. No discrimination was made in the selection 
of youth because of color, creed, politics, or national origin. Practi- 
cally every nationality was represented in the resident group. There 
was no segregation of Negro workers in project work, although they 
had separate living quarters. 

This resident center also served as a parent project for local work 
units in the surrounding neighborhoods, where transportation was 
feasible. By May 1943, the South Charleston project had served 
12,000 youth from West Virginia, Maryland, North Carolina, Ken- 
tucky, Indiana, Wisconsin, Pennsylvania, and the District of Colum- 
bia. NYA youth had built needed buildings in addition to the two 
original shops. The major construction completed by NYA youth 
workers (exclusive of barracks and other temporary buildings) was 

1. Plumbing, heating units, all electrical work. 

2. Modern 26-bed clinic, with examination rooms, laboratory, and 
treatment rooms. 

,3. Dining hall, kitchen and food storage building, in which an aver- 
age of 2,200 meals were prepared and served daily. 

4. Four dormitories for white youth, each with a capacity of 90. 

5. One dormitory for 90 Negro youth. 

6. One girls' dormitory with facilities for 66 girls. 

7. Five shop buildings, housing drafting unit, machine shop, elec- 
trical shop, gas welding and arc welding shops, pattern-making shop, 
foundry, sheet metal shop, radio shop. 



FINAL REPOBT, FISCAL YEARS 19 36-1943 



191 



8. Two brick houses, originally on the project site, were recon- 
structed and were used for recreation and commercial classes. 

9. One large frame building used for maintenance headquarters 
and a project library. 

10. Two warehouse buildings. 

11. Youth conference building of four rooms. 

12. An office building of concrete and cinder blocks. 

The maximum monthly earnings were in excess of the national 
schedule of $30 a month. The National Administrator approved an 
exemption which permitted a maximum monthly earnings of $40, from 
which $28 was deducted to cover subsistence costs, including linen ? 
laundry, recreation, and medical care. (Exemptions were granted 
for a number of other resident projects to meet larger subsistence 
costs and to permit a higher gross wage.) When the project was fully 
organized and costs stabilized, the exemption was rescinded. 

Youth spent 8 weeks in an orientation course, during which time? 
health examinations were completed, aptitude tests given, and youth 
assigned to work and given a chance to explore a particular type of 
work for which they were qualified. During a 6-month stay, youth 
usually rotated in three types of work. If special aptitudes were 
evidenced, youth were permitted to concentrate in that one field. 

Shops, equipment, and supervision were provided for the following 
production work and training : 

Arc welding. — Twenty work stations, three shifts a day. Three 
NYA-paid foremen. Work experience preparatory to employment in 
eastern shipyards. The main production was welding of ship ladders 
for the Maritime Commission. (The Wheeling, W. Va., project gal- 
vanized these ladders.) 

Gas welding. — Twenty work stations, three shifts daily. One NYA 
supervisor and three paid by the State vocational department under 
the defense training program. Work included welding in all 
positions. 

Drafting. — Fifteen work stations, one shift daily. One NYA fore- 
man. Blueprints were made ; blueprint reading and drafting taught. 

Electricity. — Twenty work stations, two shifts daily. One NYA 
and one vocational school foreman. Electrical repair, wiring, con- 
necting up machines, etc. 

Foundry. — Twenty work stations, three shifts daily. Two NYA 
and one vocational school foremen. Castings were poured ; hot metals 
handled ; moulds made ; and other general foundry work done. Pro- 
duction consisted of casting parts for NYA machines, and torpedo 
adjusting stands for Torpedo Station at Alexandria, Va. 

Auto mechanics. — Twenty-six work stations, three shifts daily. 
Three NYA and one vocational school foremen. Repairs were made y 
chiefly on NYA-owned cars, busses, and trucks. 



192 



NATIONAL YOUTH ADMINISTRATION 



Machine shop. — Eighty-four work stations, three shifts daily. 
Eighteen NYA and seven vocational school supervisors. There were 
about nine youth to each supervisor and training was given for em- 
ployment in machine tool plants. Production was entirely for the 
war effort. 

Radio.— Fifty-one work stations, three shifts daily. Two NYA 
and two vocational school supervisors. Production work consisted 
of radio maintenance and repair and manufacture of radio equip- 
ment for the War and Navy Departments; 500 transformer units 
were completed for the Civil Aeronautics Patrol. A complete short- 
-wave broadcasting unit was built for the Kenawha Valley Civilian 
Defense. 

Clerical. — Fifty work stations, one shift daily. Youth first re- 
ceived training in a clerical pool, then were assigned to various offices 
on the project and to other Government agencies in Charleston. 

T re-cadet training program, — Fifty Army Air Corps cadets at one 
time worked and studied here for 3 months. They studied air corps 
subjects for 4 hours each day and did maintenance work an additional 
4 hours. Ninety-five percent passed examinations successfully, and 
of the 167 who were finally on this war production training project, 100 
were commissioned in the Army. One, Lt. Robert Corey, received 
the Distinguished Flying Cross, the Silver Star, and the Purple Heart 
for distinguished service in air battles. 

Warehousing. — Received, stored, and shipped materials and fin- 
ished products. Youth gained experience to fit them for warehouse 
employment. 

Cooking, taking, mess management. — As all youth ate on the proj- 
ect, there was opportunity to learn all phases of cookery, serving, 
acccounting for messes, dietetics, and purchasing of foods. Both 
girls and boys were assigned to these jobs. 

In the early months of the project, youth were busy building and 
reconditioning buildings, installing equipment, and making metal cots 
for all residents and for other centers. The project also made street 
markers, waste disposal cans, first-aid kits, and traffic counters for the 
State road commission and radios for the Department of Public Safety. 
Production of items for local and State cosponsors who furnished 
materials was curtailed during the defense period and eliminated 
when the war came. 

In May 1940, the Army ordered 6,000 steel cots. This was later in- 
creased to 13.000, and every cot had to pass rigid Army inspection. 
This was the first of many defense and war orders. The machine shop 
completed 100,000 ship ladder parts for the Maritime Commission. 
It also made cartridge containers and 20-mm. shots for the Philadel- 
phia Ordnance Depot and machine gun mounts for the Naval Ord- 
nance Plant at South Charleston, as well as countless gauges, special 



FINAL REPORT, FISCAL YEARS 19 36-1943 



193 



dies, jigs, and fixtures for the Army, Navy, and other Government 
agencies. Eight percent of the machinery for this production had 
been salvaged from junk and put into condition by the youth them- 
selves. 

The arc welding shop completed on schedule 1,161 12*foot ship 
ladders for the Maritime Commission. The patternmaking and 
foundry units swung into production by furnishing cast iron, copper, 
brass, and aluminum castings, some of which were for ship ladders. 
The sheet metal shop made cabinets for radio converters and trans- 
mitters for the Civil Air Patrol. Three thousand brass flaps and 
ammunition carriers were fabricated for the Maritime Commission. 

The radio unit made interoffice communicators for local and State 
police departments and completed 500 radio converters for the Civil 
Air Patrol. One of the outstanding items produced by this unit was 
a mobile radio unit mounted on a trailer complete with a 5,000-watt 
generator and a 750-watt transmitter, all self-contained, and capable 
of being moved at a speed of 40 or 50 miles an hour, in case of flood, 
mine disaster, or other emergency. This trailer, NYA -built, had ac- 
commodations for a crew of four, with full emergency and living 
equipment. 

The supervision on all these work units was excellent. As in other 
NYA shops, sometimes older men who could not stand the strain of 
war industry and who had fine practical experience, were employed 
by NYA and often were more patient than younger men in supervising 
inexperienced youth. Safety was stressed by the employment of spe- 
cial safety supervisors, and youth were rated in safety. With an 
average enrollment of 500 youth working in machine shops, there 
were 251 accidents reported in one 6-month period. Only 2 were 
serious ; 47 were cuts or burns received while cooking. Eighty-eight 
percent was first-aid cases, and only 28 involved loss of work time due 
to accidents. 

The health record was also excellent. In addition to entrance phys- 
ical examinations and corrective treatment, youth were given examina- 
tions when training was completed so that they could meet the health 
requirements of private industry. Youth from surrounding local 
projects also came to South Charleston for physical examinations be- 
fore going to NYA induction centers to obtain private employment. 

Related training classes in all specific work and in general subjects 
were given. The project library listed 4,000 volumes of trade, general, 
fictional, and educational literature, and youth borrowed 1,600 volumes 
each month. 

Recreation opportunities were many. Athletics were placed under 
one competent supervisor, and 75 percent of the youth took part in 
some sport. Youth had access to facilities for badminton, tennis, 
croquet, horse shoes, and table tennis on the project site. Intramural 



194 



NATIONAL YOUTH ADMINISTRATION 



teams were made up from the various shops and dormitories, and the 
most popular sports were basketball, softball, volley ball, and archery. 
The project had a glee club, a string band, and a quartet. The youth 
published a monthly magazine, The Armonian, taking the name from 
"Armor City" which they had dubbed the resident project. Weekly 
social events took place, and the annual social activities included the 
anniversary banquet, election dance, Armistice Day program, Flag 
Day ceremony, Easter ball, hobby show, Fourth of July program, 
Hallowe'en program, and boxing tournaments. 

Youth formed their own government which attended to minor dis- 
ciplinary problems. Every 2 months they elected a mayor, a clerk, 
and six councilmen. Youth also ran conference groups and discus- 
sion groups in civics and government. 

Early in the program, cosponsors included municipalities, counties, 
boards of education, county courts, which furnished the materials 
for office furniture and equipment, schoolroom furniture, laboratory 
equipment, and other items. Later, cosponsorship was almost entirely 
the Army, the Navy, the Maritime Commission, and other Federal 
agencies. 

The boys and girls who came to the South Charleston resident proj- 
ect often had lived in remote rural areas where work and educational 
opportunities were limited. They learned trades and occupations 
which fitted them for better industrial employment, for the military 
services, and for earning their own livings in the future. 

Conclusion 

The resident project program was initiated by NY A as an experi- 
ment. That this program proved successful is confirmed by the 
size to which it grew and by the number of needy unemployed, out- 
of-school youth who lived and worked together in these centers. 

The general public, labor, industry, and education evidenced intense 
interest in this program; under-privileged youth received an experi- 
ence in instructive group living and democratic self-government ; their 
general health and mental attitudes were improved; youth learned 
respect for public property because they were required to maintain 
the grounds and buildings in which they lived and worked. They 
earned their way while they learned. Eeal production was intrinsic 
in the resident project work. 

Youth had an opportunity for a varied work experience related to 
the requirements of general group living. NYA resident youth were 
trained for employment and were either placed in industry or returned 
with new courage to their local communities, where citizen members 
of local advisory committees and the U. S. Employment Service helped 
in finding jobs for them in order that their NYA work experience 
might be applied to jobs in private industry and not lost because of a 
long period of unemployment. 



• VIII ' 

Out-of-School Work Program: Services to 

Youth 

The NYA objectives with reference to youth services were (1) to 
establish and to encourage the establishment of job training, counsel- 
ing, and placement services for youth; (2) to encourage the develop- 
ment and extension of constructive educational and job -qualifying, 
leisure-time activities. Throughout the program, NYA officials at- 
tempted to develop and stimulate such services for underprivileged 
youth, as well as youth on its own program. 

NYA did not have sufficient funds for the specific purpose of set- 
ting up its own Nation-wide programs of youth services. Rather, 
it depended upon the cooperation which could be obtained in the local 
communities and the assistance of State public and quasi-public 
agencies, and Federal agencies such as the U. S. Department of Health, 
the WPA, and the U. S. Office of Education. 

The 'principal youth services which were goals of NYA were guid- 
ance and counseling, related training, health program, and recrea- 
tional services for NYA youth workers. Safety was also an essential 
part of the works program. 

During the last 2 years of operation, NYA set up an inter-State 
clearance system to transfer youth from areas of labor surpluses to 
areas of labor shortages as a service to qualified youth on NYA and 
to defense and war industries. 

NYA paid the administrative expense of the Federal Committee on 
Apprentice Training for 2 years (fiscal years 1936 and 1937) in order 
that the promotion of apprenticeship training might be carried on 
until such time as this committee was established by Federal statute. 

This chapter presents a summary of the foregoing services which 
were part and parcel of the out-of-school work program for needy 
unemployed young people. 

Youth Personnel Service, Guidance, and Counseling 

The NYA provided personnel services to its youth as well as work 
by emphasizing job training, counseling, and placement services for 
youth. Where these services existed in the local communities, NYA 
made use of them ; where they did not, NYA established them. NYA 
was a unique organization in that on the one hand it gave guidance 

195 

566597—44 14 



196 



NATIONAL YOUTH ADMINISTRATION 



and counseling for jobs and, on the other hand, it provided the oppor- 
tunity through its work projects for a practical follow-through on 
the youth's occupational choice and for further exploration and re- 
direction if this choice changed. 

Immediately after the NYA was created, the National Administra- 
tor appointed a director of guidance and placement at the national 
level. Guidance and placement staff members at the regional and 
State levels were appointed soon after. Until the end of fiscal year 
1939, these staff employees provided the area and county supervisors 
with guidance and counseling programs and material. The actual 
counseling of youth was done on the local project by the NYA and co- 
sponsor supervisors with only general national standards and methods 
available to them. In 1939, however, when the NYA became wholly 
responsible for all services performed by the WPA, the Guidance and 
Placement Division, with heretofore only vaguely defined functions 
and responsibilities, became a more functional youth employment 
division and by 1940 the Division of Youth Personnel was established. 
A complete program of youth personnel services then was placed in 
operation to achieve positive guidance and counseling methods at the 
project level. This division, in addition to guidance, counseling, and 
placement, assumed responsibility for selection, assignment, reas- 
signment, and termination of NYA youth workers, which heretofore 
had been performed for NYA by the WPA. The NYA employment 
officers at the project and area levels became administratively respon- 
sible to the NYA area director, but functionally responsible to the State 
director of youth personnel, who was functionally responsible to the 
regional director. With the elimination of State organizations at the 
beginning of fiscal year 1943, the youth personnel officer at the project 
level became administratively responsible to the project manager and 
functionally responsible to the regional youth personnel director. 

The development of youth personnel services was influenced by the 
youth themselves as well as by the times. During the first 4 years 
of NYA, project youth came almost entirely from relief families. 
Many had no idea as to what line of work they wanted to follow, and 
had made no occupational choice. Many of them had had no work 
experience at all. 

"When the employment picture was so black, it was difficult to 
direct youth into educational or occupational activities. The basis 
of the guidance program in the early years consisted largely of find- 
ing answers for these questions : 

1. How did the youth spend his leisure time ? 

2. What were the effects of the staggered work hours on the de- 
velopment of good work habits and attitudes ? 

3. How could the youth be counseled in the choice of a job that 
didn't exist ? 



FINAL REPORT, FISCAL YEARS 193 6-1943 197 

4. How could long-term planning and training be done when the 
industrial picture was so bleak? 

5. How could youth maintain skills they had acquired ? 

Youth guidance was interpreted as applying to educational, recrea- 
tional, social, personal, health, community, and civic opportunities. 
Job information and information about available community train- 
ing facilities were stressed as part of vocational guidance, which 
contributed toward the better social and economic adjustment of the 
individual youth to his community and therefore to the ultimate 
demands of working for a livelihood. On the other hand, guidance 
and training had to stress the basic requirements for an effective 
worker, namely, good work habits and proper attitudes toward fellow 
workers and superiors. 

In 1939, when NYA took over the duties of selection and assign- 
ment of youth to NYA projects, employment opportunities were ap- 
pearing. Vocational guidance now became a principal point of em- 
phasis. Workshop projects had been developed sufficiently to provide 
work experience in many trades, and was continuing to expand, with 
an increasing number of youth wanting assignment to these projects. 

The establishment of the defense training program for NYA 
youth under the auspices of the Office of Education provided for 
much more extensive related training than heretofore possible to 
supplement the NYA work experience. The increased number of 
available training classes was an aid both to the counselor and to the 
youth in obtaining training related to their work experience. Health 
education continued to be an important phase of the counseling and 
work project content. An attempt was made by NYA officials to 
secure medical examinations for all NYA youth, not just for those 
obvious cases where medical attention and treatment were plainly 
indicated. 

The progress youth made in their NYA work was recorded and 
reported. Youth were reinterviewed at regular intervals and their 
work problems discussed. If the youth had not progressed suffi- 
ciently, after adequate job exporation and rotation, or if work habits 
and attitudes did not warrant further employment on NYA, they 
were terminated from the project. 

The shift to defense and war production training caused a corre- 
sponding shift in emphasis with reference to the type of counseling 
and guidance given the youth. The youth were now selected on the 
basis of preparing them to meet job specifications set up by industry, 
provided to the NYA by the local offices of the U. S. Employment 
Service. This agency also was designated as the recruiting and 
referral agency for NYA youth workers. In cases where the local 
USES office could not fill the vacancies on NYA projects, NYA did 
its own recruiting, after clearance with the local USES office. 



198 



NATIONAL YOUTH ADMINISTRATION 



The preparation of youth for specific industrial operations now was 
of major importance. The youth's stay on the project was determined 
by the number of hours needed to learn a particular operation. During 
this period there was little time for intensive personal counseling. 
The aim was to direct the youth into a workshop activity for which he 
was qualified, inform him of the physical and health requirements set 
by industry, obtain the needed documentation as to birth and citizen- 
ship, and follow up on his progress in the shop. Transfer to another 
shop unit was arranged if an employable youth did not adjust to the 
particular shop activity to which he had been assigned. Job rotation 
as it had existed in the first years was reduced to a minimum. The 
youth was required to register with the USES and to keep this regis- 
tration active. When the foreman judged the youth to be adequately 
prepared, his progress report was referred to the local USES office 
for placement in industry. 

The following special youth personnel services which were developed 
did not all come at one time, but were created and developed to meet the 
problems of the changing situation. 

Youth Guidance Records 

The necessity of interviewing each youth before assignment to a 
project in order to supply the supervisors with essential information 
regarding the youth was apparent early in the program. At first, each 
State office developed its own interview form, but in 1939 a standard 
form was made available by the national office and its use required, 
with additional items permissible if desired. The youth interview 
record included information about vital statistics, family history and 
background, the youth's educatonal achievement, previous work ex- 
perience, avocational interests, and occupational ambition. After a 
youth had been employed by the NYA, the related training courses 
taken were recorded on this interview card ; reinterviews were recorded, 
and remarks or observations made by the youth's supervisor. In 1942, 
selective sevice status and health were added as items on the interview 
card. Prior to 1939, the information gathered from youth regarding 
avocational interests and leisure-time activities were the principal 
points used by NYA counselors in arranging for recreational outlets 
as a chief service to youth. The information on the family background 
and youth's occupational ambitions very often served as guides in 
establishing work projects to combine work experience and training" 
which might result in improved living conditions in the home. 

Youth Progress Report 

As a rule, supervisors' duties included a day-by-day counseling 
of the youth workers. The youth's development was recorded in- 
formally on the interview blank if filed at the project or on a copy 



FINAL REPORT, FISCAL YEARS 1936-1943 



199 



sent to the supervisors. A standard progress report form was de- 
veloped by the national office in 1940 to be used by supervisors in 
recording a youth's progress in his work. The use of these progress 
cards was required. Ratings of excellent, good, fair, and poor were 
given for production efficiency, care of tools and materials, attendance 
and punctuality, interest in training, attitude toward fellow workers, 
improvement in appearance, improvement in health, readiness for 
private employment, and efforts to get private employment. 

The cards were checked by youth personnel staff at intervals of 
not more than 6 months in order to determine that the individual 
youth was getting the maximum benefit from NYA work. This re- 
view provided the youth personnel with a record of worker per- 
formance on projects, insured that every effort was being made to 
obtain private employment for youth who were ready for it, made 
it possible to see that youth with unsatisfactory performance records 
and attitudes were either transferred to more suitable work or termi- 
nated, and checked the degree to which the youth had availed them- 
selves of related training and health improvement opportunities. 
This information then served as a basis for the reinterview and the 
continued counseling of the youth. 

During fiscal year 1942 a progress report on each NYA youth was 
required every 3 months for youth on the regular program and at 
least once each month for youth on the defense program. This youth 
progress report was transmitted to the area youth personnel officer 
who reviewed it and determined what action, if any, was to be taken 
to further the youth's adjustment. The area youth personnel officer 
discussed the problems of individual youth with the project super- 
visor whenever possible. 

The youth's progress report developed for the fiscal year 1943 
omitted many of the items used previously and included specific in- 
formation on the types of industrial operations learned in the par- 
ticular workshop where the youth was assigned, the number of hours 
spent on each machine and each operation, a notation of any toler- 
ances within which the youth could work, and the supervisor's esti- 
mate of the youth's employability. 

Local NYA youth personnel officers supplied the local USES offices 
with the information on the progress card of individual youth, which 
was used by these offices in placing the NYA youth in employment 
for which he was qualified and prepared. 

Steps in Youth Guidance 

To give adequate guidance, five steps were taken with the youth, 
namely, (1) help the youth to evaluate himself, (2) help the youth 
to make a vocational choice, (3) help the youth plan his training pro- 
gram to achieve the vocational choice he made, (4) place the youth 



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NATIONAL YOUTH ADMINISTRATION 



in the work he could best do, (5) follow up on the work assignment 
to insure results for the youth. NYA was not prepared to take care 
of all these steps within the framework of its own organizaton. By 
utilizing the available community facilities and with the help and 
cooperation of other governmental agencies, NYA was able in most 
instances to give guidance to the youth on its program to accomplish 
the five purposes mentioned above. 

By means of an individual interview, the youth was helped to eval- 
uate himself and to make a vocational choice compatible with his 
abilities and interests. Every attempt was made to place youth on a 
project which provided the best opportunities for acquiring work 
experience in an occupation in which he was interested and for which 
he had aptitude. Where the project facilities or operation could not 
or did not provide the work experience or training for a particular 
occupational choice, related training courses often were arranged 
to supplement this lack in the work experience. From 1935 to 1940, 
training facilities which existed in communities were used, if they 
were available. Where the training facilities were inadequate, the 
NYA encouraged the establishment of training by groups or indi- 
viduals in communities. Where this could not be done, NYA set up 
its own training classes for NYA youth. 

In 1940, when Congress first appropriated defense funds to the 
U. S. Office of Education for the training of NYA youth, the State 
public vocational officials were permitted to expend part of this money 
for the rental or buying of equipment. Training opportunities were 
then made available under the public vocational school system to a 
greater number of NYA youth on the regular program, especially 
those living in rural and small communities. The training recom- 
mended to NYA youth was usually related to the project work experi- 
ence, although courses in household management, marketing, and 
budgeting were also made available, especially to young women. 

The related training of NYA youth employed on defense projects 
and war production training projects was required to be related to 
the job they were doing in the NYA defense shop. Once a youth was 
assigned to a NYA shop, related training was prescribed to supple- 
ment the particular type of shop work. Neither the counselor nor the 
youth decided on the type of related training courses he would take. 

Placement Service 

The USES was the designated agency to refer NYA youth to private 
employment. Until 1937 few placements were made through the 
local USES offices. When a supervisor heard of temporary or per- 
manent job openings, he advised youth who were considered employ- 
able to apply. Job-hunting campaigns were planned jointly b} T super- 
visors or counselors and the NYA youth. The youth were counseled 



FINAL REPORT, FISCAL YEARS 193 6-1943 



201 



as to proper dress, approach, how to fill out an application form prop- 
erly, where the possible sources of employment might exist. 

Each NYA youth was required to register with the local employ- 
ment service office and advised to keep his status active by reporting 
for reinterview at regularly designated intervals. 

Follow-Up After Placement in Industry 

A follow-up on NYA youth after placement in private employment 
was carried on only in a few areas. Where NYA supplied trained 
workers upon the specific requests of specific industries or trained 
workers for the Army and Navy depots, this follow-up developed 
spontaneously out of the frequent necessary contacts between the 
NYA staff and the particular employer. The adjustment of NYA 
workers to jobs on occasion were reported to the NYA staff by em- 
ployers, and these reports sometimes furnished the basis for the im- 
provement of the project operation, training, or counseling of the 
NYA youth. 

Group Guidance 

In matters of general rules and regulations concerning NYA opera- 
tion, shop procedure, safety, etc., group guidance was used. This was 
time-saving and often a more effective guidance procedure for getting 
the information across to the youth than the individual conference 
technique. The question and answer period served to cover the subject 
completely and brought out for discussion many questions which the 
youth had not thought of or had been too shy to ask about. 

Junior Placement Offices 

Before the National Youth Administration was set up, there was only 
one State — New York — which maintained a special division for the 
placement of young, inexperienced workers. Junior placement offices 
were first established by the National Youth Administration in co- 
operation with the State employment services to facilitate the place- 
ment of young people in jobs with private industry. In March 1936, 
the first NYA placement counselor was assigned to a public employ- 
ment office. On July 1, 1940, a little over 4 years later, in 187 cities of 
41 States special junior employment divisions were being operated as a 
result of work done or methods established by NYA. These junior 
employment services were designed to help unemployed young people 
secure jobs in private industry. They were organized as units within 
the offices of the State employment service and used the same equip- 
ment and facilities. 

Of these 187 junior divisions, 32 were established and originally 
financed by the National Youth Administration but were taken over by 
the State employment services as a regular part of their budgeted ac- 
tivities. In 90 of these cities, the State employment services established 



202 



NATIONAL YOUTH ADMINISTRATION 



junior employment divisions with the technical assistance of the Na- 
tional Youth Administration, but supported by their own funds. The 
remaining 65 offices, which functioned within the State employment 
services, were partially staffed with persons paid from NYA funds. 

From June 1935 through June 1940, the NYA expended close to 
$650,000 on junior employment services, of which about 98 percent was 
spent for salaries of the placement staff and the remaining 2 percent 
was expended for nonlabor costs. 

On July 1, 1940, NYA withdrew from junior placement services and 
the continuation of these services became the sole responsibility of the 
Bureau of Employment Security of the Social Security Board. 

NYA pioneered in this type of junior placement, and paid part of 
the cost of maintaining the service, because the State employment 
offices were not equipped at that time to handle the job-finding prob- 
lems of youth. By cooperating with the State employment offices, 
which furnished the necessary facilities and supervision, NYA at- 
tempted to speed up the process of moving NYA youth off its projects 
and into jobs in private industry. 

It was a highly specialized work, requiring personnel trained in the 
vocational guidance and placement of 3'outh who had never previously 
worked in private industry, and who therefore could not be readily 
classified according to regular occupation. State employment offices 
were being stretched to the utmost to take care of the placement of 
adult workers. If the NYA had not been available to perform a simi- 
lar service for youth, the important service of youth guidance and 
placement in private industry undoubtedly would have continued to 
be neglected. 

Aptitude Testing Program 

Certain objective tests approved by the national office of youth 
personnel were used as guides in assigning youth to projects. Pre- 
cautions had to be taken that these tests were administered properly. . 
The result of tests alone was not considered as proof of lack of 
aptitude, but served as one additional tool in selection. For example,- 
as an aid in the selection of youth for the NYA radio projects a bat- 
tery of tests was given which included tests in auditory discrimination, 
arithmetic, and vocabulary. 

In 1940, with the expansion of the shop program, and with the 
demand on the part of most youth for placement in these NYA shops, 
the Detroit Mechanical Aptitude Test was administered to test the 
mechanical abilities of new youth coming to NYA, those already as- 
signed to defense shops, and also to those on the regular program 
who wished to transfer to these shops. An analysis of the first 13,638 
tests administered to these youth revealed that 6,466 made scores show- 
ing strong probability of success in the metal and mechanical trades. 



FINAL REPORT, FISCAL YEARS 193 6-1943 



203 



Testing as a basis for selection and assignment to NYA projects was 
never used on a Nation-wide scale. 

Occupational Studies 

It was as early as October 1935 that the need for bringing together 
information regarding fields of employment, training, educational, 
and recreational outlets was recognized. The national director of 
guidance and placement authorized the employment of personnel on 
State staffs for the collection and preparation of industrial and oc- 
cupational studies. 

For all youth, regardless of their need or relief status, who had 
never had the chance to get assistance in the difficult task of intelli- 
gently selecting a career, NYA prepared and published more than 
100 comprehensive industrial and occupational studies. In these was 
given a detailed description of the types of work involved in each in- 
dustry and occupation, the duties, the training requirements, the job 
and promotional possibilities, and the wages or salaries paid. These 
studies were provided to those teachers or youth who wished them. 
In 11 States job information or occupational classes for out-of -school 
youth were specially arranged where the studies were analyzed and 
discussed, talks were given by industrial leaders of the community, 
and industrial movies were shown. Weekly radio programs on jobs 
were broadcast in 18 States, usually taking the form of talks by 
persons employed in the various occupational fields. And, finally, 
in 12 cities, where active cooperating sponsors made technical assistance 
available, special consultation services were set up both to analyze 
the preferences and talents of young job seekers and to give them in- 
formation regarding possible lines of employment and training. 

An outstanding contribution to the preparation of occupational 
studies was made by the NYA State staff of Illinois. Not only Were 
occupational studies and briefs prepared, but collateral studies were 
made for NYA work experience projects which consisted of graded 
unit lessons in such fields as sewing, machine-shop work, wood-shop 
work, home mechanics, domestic services, building maintenance, park 
improvements, safety, first aid, and many other subjects in fields of 
work related to project assignments of NYA youth. These collateral 
studies were used to assist in project operation and planning and their 
primary function was to broaden the youth's knowledge and skill in 
a particular field. 

Relationship Between the Foreman and the Youth Counselor 

Even with the establishment of the Division of Youth Personnel, 
which was specifically responsible for relating the work experience 
of NYA youth to other employment opportunities, the supervisor or 
foreman was the key to the on-the-job counseling and guidance of 



204 



NATIONAL YOUTH ADMINISTRATION 



NYA youth. The youth personnel staff advised and guided the youth 
in the choice of a vocation or occupation, assigned the new NYA 
worker to work operations, and explained the rules and regulations 
governing work on NYA projects. But the foreman was the person 
who supervised the work done by the youth, and developed work 
habits and attitudes through the routine of good job performance. 
Close working relationships between members of the Work Projects 
Division and the Youth Personnel Division at national, regional, 
State, and project levels were of prime importance in achieving an 
effective guidance and counseling program. To achieve closer rela- 
tionship, the National Administrator in May 1941 outlined to State 
administrators a procedure of working relationships between these 
two divisions at the area and local levels. All area and local youth 
personnel workers were to keep currently informed of work projects 
operating or being established in their locality. Youth personnel staff 
was required to visit these projects personally to see what work was 
being done. They were directed to become acquainted with the super- 
visors in order that assignments to the projects might be in line with 
the projects' requirements and conditions of employment. The State 
Division of Work Projects was responsible for informing the State 
Division of Youth Personnel whenever changes occurred in types or 
conditions of project work. In the initiation of new projects the Divi- 
sion of Work Projects was to consult with the Division of Youth 
Personnel as to the type of youth labor in the local "waiting" assign- 
ment file. Wherever a youth worker gave evidence of not doing satis- 
factory work on the project, the project supervisor referred the youth 
back to the Division of Youth Personnel with a recommendation for 
transfer or, if necessary, for termination. 

The Division of Operations and the Division of Youth Personnel 
shared the responsibilities for the functions incident to the induction 
of youth into a job, his guidance and progress through a shop, his 
transfer, recommendation for employment and termination, as well as 
functions related to shop safety and sanitation. This joint respon- 
sibility entailed close cooperation between the members of these two 
divisions at all levels. At the project level, cooperation was assured 
since both divisions worked with youth at the work locations. Coop- 
eration on the part of the regional and national staffs involved more 
than the working together of the personnel of the two divisions. It 
required joint planning, agreement as to procedures, and, most im- 
portant, their combined efforts to relate NYA work experience to em- 
ployment outlets to give the young people from NYA projects a 
sense of personal accomplishments, security in themselves and in their ,, 
job preparation. 



FINAL REPORT, FISCAL YEARS 1936-1943 



205 



Employment Induction Centers 

The enormous expansion of war production facilities in highly in- 
dustrialized areas and the building of new plants in localities where 
little or no manufacturing had been done before resulted in a demand 
for labor in excess of local labor supply. Many sections far removed 
from industrial expansion areas and with no war contracts had sur- 
pluses of workers. Other areas with a concentration of war produc- 
tion faced shortages of labor. 

Thousands of individuals began to migrate into the labor shortage 
areas. This uncontrolled and undirected migration created prob- 
lems in housing, feeding, and recreation which affected not only the 
immigrants but also the thousands of employees already at work. 

In this situation NYA was able to make a contribution to an or- 
derly labor market process. During the defense period, NYA had 
established many work shops in or near manufacturing centers. 
These nonresident shops trained youth for local industries or for 
war industries within a commuting radius. At the same time NYA 
had available a large reservoir of trained youth in many of the 
southern States, in New York City, Kentucky, parts of Pennsylvania 
and in a number of States west of the Mississippi, The NYA youth 
in these areas had obtained work experience and training in machine 
shop, welding, foundry, and sheet metal. Since few defense con- 
tracts had been awarded to these regions, the skills of these young 
men were not being utilized in the defense effort. NYA youth also 
were receiving training in resident centers located far from manu- 
facturing areas. Most of the youth at these centers came from com- 
munities where training facilities were not available. These youth 
were another source of qualified labor supply for the war effort. 
NYA, with its nation-wide network of projects, was uniquely 
equipped and organized to facilitate orderly defense migration. 

Early in 1941, Connecticut began to experience a labor shortage. 
Skilled and semiskilled workers were not available, nor were there 
sufficient numbers of unskilled workers to train for the defense occu- 
pations. In October 1941 a review of the active file by the Hartford 
Employment Service office showed 5,422 registrations; a year before 
that 11,251 workers had been registered as seeking work. An anal- 
ysis of the active file revealed that actually only 142 of the 5,422 
were available and referrable workers. 

To help alleviate this labor shortage, NYA and the Connecticut 
Employment Service jointly worked out a plan for the orderly trans- 
fer and placement of qualified NYA youth from labor surplus areas 
to the Hartford area. The first NYA induction center thus was in- 



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NATIONAL YOUTH ADMINISTRATION 



itiated to bring NYA youth from other areas to an area where job 
opportunities for them had been secured. 

At Nepaug Village, 15 miles west of Hartford, there was an NYA 
resident project with machine-shop equipment and adequate facilities 
for housing the NYA youth between their time of arrival and actual \ 
employment. During this period, the youth worked at the resident , 
project. The Employment Service in Connecticut provided. the NYA 
with job specifications and orders for the types of workers needed by 
employers in the Connecticut River Valley. The NYA officials in 
Connecticut forwarded this information to the national NYA office 
from where it was sent to the NYA regional and State administrators 
for selection of NYA youth who met the job requirements and who 
were willing to go to Hartford for a job. The youth selected were 
sent to the NYA induction center at Nepaug Village, where they re- 
mained for a period of 10 to 14 days before they were placed in indus- 
try. During this period, these youth were given work and training 
at the Nepaug Village project. They were interviewed by employ- 
ment service officials for referral to jobs or by the employers them- 
selves. The NYA staff assisted the youth in finding living quarters 
and counseled them about leisure time activities. When the NYA 
youth left the induction center, they had a job, a suitable place to live 
and enough money to live on until they received their first pay check 
from the new job. 

By July 1, 1941, this transfer program had proved so successful 
that the NYA in Connecticut set up induction centers at Wethersfield, 
5 miles south of Hartford, and Norwich. The work stations at these 
three centers were in machine shop and in sheet metal. All these 
centers which were supplying the Hartford industries with trained 
workers operated on a 3-shift basis. 

After this transfer method had been successfully demonstrated by 
the Connecticut centers, similar reception depots or induction centers 
were established throughout the country in war production areas 
experiencing shortages of qualified labor. 

By January of 1943 there were 32 induction centers located in 23 
States in operation throughout'the country. From July 1942, through 
May 1943, a total of 28,727 NYA youth from almost every State had 
been transferred to induction centers for placement into war indus- 
tries. For example, there was an induction center on the west coast at 
Richmond, Calif., which brought NYA youth for employment in the 
shipyards. The induction center at Seattle, Wash., was adjacent to 
the Boeing Aircraft Co., which needed workers desperately to staff 
its huge "flying fortress" plant. The center at Norfolk, Va., was 
located near the Norfolk Navy Yard. 

The States with the largest labor surpluses were those from which 
the largest number of NYA youth were selected for war employment. 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



207 



The States from which the largest number of NY A youth was trans- 
ferred to induction centers were as follows : 

Alabama 896 Ohio 568 

Arkansas 2,544 Oklahoma 2,733 

Florida 670 Pennsylvania 1, 031 

Georgia 1, 999 South Carolina 1, 001 

Kentucky 1, 882 Tennessee 1, 690 

Minnesota 645 Texas 2,150 

Mississippi 1, 626 West Virginia 3, 294 

North Carolina 926 Wisconsin 508 

A survey of new arrivals and placements made by the 32 induction 
centers for the period January 1943 through May 1943 revealed ll ? 234: 
new youth arrivals at the centers and a placement record of 9,075 or 
82 percent of these NYA youth into war industries. Those with the 
largest intake and turn-over into war industries were the centers 
located at Richmond, Calif.; New Haven, Conn.; Mobile, Ala.; 
Wichita, Kans. ; Baltimore, Md. ; Eugene, Oreg. ; West Chester, Pa. ; 
Norfolk, Va. ; and Seattle, Wash. 

An analysis of the industries into which the NYA trained youth 
were placed showed that they fell into three major categories, namely, 
shipbuilding and repair, aircraft construction and repair, and the 
machine-tool trade. In New England, for example, the majority of 
youth were placed in the machine-tool industry. On the eastern coast 
as at Norfolk, Va., and on the southern coast as at Mobile, Ala., the 
greatest number of NYA youth was placed in the shipbuilding in- 
dustries. On the west coast the aircraft and shipbuilding companies 
absorbed most of the NYA trainees from the induction centers located 
there. A survey of representative firms that employed NYA youth 
from 6 selected induction centers revealed 97 such companies. 

Regulations Governing Interstate Transfer 

The plan of interstate transfer of NYA youth which the NYA and 
the IT. S. Employment Service developed was an orderly labor market 
recruitment and placement method. 

The following regulations governed the recruitment, transfer, and 
placement of NYA youth : 

1. The approval of the NYA regional director of youth personnel 
was required before any State was sent a requisition for NYA youth. 

2. Adequate opportunities for the immediate placement of trans- 
ferred youth into war industries in the receiving State or in a partic- 
ular labor market were to exist. 

3. To assure the placement of as many youth as were requisitioned, 
the receiving State had to have adequate resident and shop facilities 
for the completion of the necessary work experience of the trans- 
ferred youth. These facilities could not be made available to out- 



208 



NATIONAL YOUTH ADMINISTRATION 



of -State youth if they were needed to meet the needs of the youth in 
that State. 

4. Youth were not to be transferred from States or localities in 
which there existed labor market shortages with available oppor- 
tunities for placement in war industries as certified by the USES. 

Requisition and Clearance Procedure 

The USES had the responsibility for clearing defense labor supply 
between States and other geographical areas of the country. The 
clearance for transfers of NYA youth was conducted under a modified 
standard Employment Service procedure, designed to meet the special 
problems involved in the transfer of NYA youth. 

The NYA officials in consultation with the Employment Service 
officials determined whether the defense labor needs in that State 
justified the transfer of NYA youth from other States. The NYA 
regional director of youth personnel first sent an "informal requisi- 
tion" to the NYA youth personnel officer of a particular State and 
to the appropriate local Employment Service office. This requisition 
designated the number of NYA youth needed, the job specifications, 
wages, hours of work, living and working conditions, and a description 
of the NYA project and living facilities in the area to which they 
were to be transferred. These requisitions covered the number of 
workers required to meet the labor needs in a labor shortage area for 
a 4- to 6-week period. , 

The local Employment Service office which served the NYA induc- 
tion center prepared and distributed through its interstate clearance 
system a labor requisition for the number and type of NYA youth 
needed to meet employers' labor requirements. This order gave quali- 
fications for particular jobs. 

Simultaneously an identical order for the transfer of youth workers 
was sent by the NYA regional office to the NYA offices participating 
in the selection of NYA youth for defense or war employment in 
another area. 

Selection of Youth for Interstate Transfer 

The appropriate State Employment Service office and NYA officials 
determined the projects from which the transfers were to be made. 
The officials of the local Employment Service offices and of the local 
NYA projects cooperated in the selection of the NYA youth to be trans- 
ferred. In selecting the youth all conditions and qualifications set 
forth in the requisition had to be met. Youth to be transferred had 
to have sufficient NYA work experience or demonstrated sufficient 
ability for employment in war industries at the end of the period of 
assignment to the NYA project. In addition, he had to be in good 
health and free from any temporary physical condition which might 



FINAL REPORT, FISCAL YEARS 1936-194 3 



209 



make travel or change to a new climate dangerous. The NYA youth 
had to have sufficient money on arrival at the project to pay for his 
room and board during the first week of private employment. He had 
to have a birth certificate indicating his age and evidence of citizenship 
and a Social Security account number card. 

Prior approval was needed from the receiving State before any 
handicapped youth could be transferred. 

Transfer of Documents and Youth Personnel Records 

On the day of the youth's departure to an induction center, the fol- 
lowing documents were forwarded to the requisitioning project : Youth 
personnel record, certificate of war-production training, a statement 
of parental consent for resident center assignment, out-of-State trans- 
fer approval, a health examination record, and any other special in- 
formation requested by the prospective employer. 

Transportation 

The youth's transportation was paid out of NYA funds allocated 
to the NYA transferring project. The youth was furnished trans- 
portation at the same reduced rates granted to Government employees 
engaged in official travel. 

The sending project notified the receiving project by wire of the 
time of leaving, scheduled time of arrival, and the name of the railroad. 
No youth could be returned to his home State at NYA expense within 
six weeks after his transfer except for emergency reasons. Interstate 
travel of youth emplo3 7 ees was by day coach and by the most direct 
route. 

Termination and Reassignment 

The transferred NYA youth was "terminated from employment" 
by the sending project and "assigned to work" at the receiving project 
effective as of the hour and date of arrival at the receiving project. 

Counseling 

Prior to transfer, complete information about the resident center's 
living and training conditions, the length of stay at the resident center 
before placement into the war industries was given to the NYA pros- 
spective transferee. He was also advised concerning the living condi- 
tions, the cost of living and the type of employment, wages, and hours 
of work he could expect in the community into which he was being 
transferred. 

After the NYA youth's arrival at the center and during his 2 
weeks' stay there, interviews were arranged for the youth with the 
local employment service officials for referral to employers. Often 
employers or their representatives came directly to the induction 
center to interview the applicants. Where additional medical exam- 



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NATIONAL YOUTH ADMINISTRATION 



inations were required by the local industries, NYA officials arranged 
for them during this period. The youth was assisted in obtaining 
suitable housing and living quarters by the NYA staff. The youth 
was counseled and advised as to the recreational facilities available 
for leisure- time activities and directed to churches, Y's, community 
and educational centers. Information about the union organization 
in the specific industry into which he went was given to him. The 
youth was again advised of a worker's responsibilities to his employer 
and to his fellow workers. 

The local Employment Service office referred the youth to war 
employment at the completion of a designated period at the induction 
center. 

Related Training 

Related training on the NYA work program may be defined as 
instruction, study, or practice on machines, for which no payment 
was made and the product of which did not go to cosponsors. Re- 
lated training of an informal type started simultaneously with the 
work program. The object was to provide youth with fuller and 
more specialized training and knowledge than project work afforded. 
Until July 1940, this related training was carried on in all States 
in the following three ways: (1) instruction on the job, when the 
supervisor might stop production to give an individual or a group 
special information concerning a certain work operation; (2) in- 
struction at the project site after work hours, which might be formal 
classes taught by the supervisor or supplemental work by the youth 
on products for which they furnished the materials and which they 
kept for themselves; (3) or informal after-hours work such as tear- 
ing down and rebuilding motors, and classroom instruction, usually 
in schools, but sometimes in settlement houses, service clubs, or WPA 
adult education courses. 

In July 1939, NYA ruled that "youth employees may be required 
to participate in a program of related training, which may be in- 
cluded in their monthly assigned hours, provided that the total 
assigned hours do not exceed 100 hours per month. Within the maxi- 
mum assigned hours provided herein, youth employees shall be con- 
sidered in pay-roll status for the entire period during which they 
are under the supervision of the National Youth Administration." 
This meant that young people might be paid for related training. 
There was quick objection from the United States Office of Education. 
NYA was charged with setting up another system of vocational edu- 
cation in the vocational education field. In September 1939, 3 months 
later, NYA revised its regulation and no longer permitted payment 
for related training. 



FINAL REPORT, FISCAL YEARS 1936-1943 



211 



While related training was not required of NYA youth, it was 
strongly advocated. Since the list of youth waiting NYA assign- 
ments was large, in many instances those were selected who were 
willing to take related training. Supervisors were selected who 
could instruct as well as supervise production. Smith-Hughes and 
George-Deen funds were sometimes made available to pay vocational 
teachers for NYA classes. Funds had to be requested by State 
vocational authorities, and such requests were made and granted in 
many States. In 1938, these funds were made available for courses 
for NYA youth in about 15 States. In 1939, the NYA and the United 
States Office of Education undertook a cooperative, experimental 
related training program in 2 cities, Detroit and Pittsburgh, and in 2 
States, Indiana and North Carolina. Classes for NYA youth taught 
by public school teachers were organized at the project or in the 
schools, related to project work, and adjusted to the available time 
of youth workers. The United States Office of Education cooperated 
in preparing some instructional material. 

In Detroit, NYA youth were permitted to enter evening classes at 
half the regular fee. Sixty percent of the NYA youth enrolled. 
NYA was qualified as an employer so that the Detroit school board 
might be reimbursed for teachers' salaries from Federal and State 
trade and industrial funds. Ten extra teachers were hired and 500 
to 600 youth registered. Students received 15 hours of instruction 
each month. They attended school for 1 week and then remained away 
for 3 weeks. Classes were held in NYA work centers or in any other 
suitable space. Classes were ungraded and content ranged from ele- 
mentary school to college. Every effort was made to avoid a schoolish 
atmosphere, and such usual fixtures as textbooks, lesson assignments, 
credits, and marks were missing. Students met around tables and 
chose subjects for discussion. These included : 

1. The creation of jobs. 

2. Occupations in a changing society. 

3. Laws affecting employees. 

4. Wage plans. 

5. Making a job of getting a job. 

6. Agencies providing leisure time activities. 

7. Advantages under the American system. 

8. Money management for a household. 

9. The value of your name and signature. 

A large part of the leaders' time was spent in personal guidance be- 
cause the objective of these courses was to increase the youths' em- 
ployability. 

In Pittsburgh, the experiment was different. Eighteen hundred 
youth from NYA projects enrolled in 47 courses offered in public 
schools. Classes were held one day each week from 3 :30 to 9 :30 

566397—44 15 



V 
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NATIONAL YOUTH ADMINISTRATION 



p. m. During a half-hour supper period, meals were served at cost 
in the school cafeterias. It was interesting that many of the youth who 
found private jobs asked for the privilege of continuing these courses. 
The average age of the youth was 20y 2 years. About 38 percent had 
graduated from high school and had been unemployed from 2 to 
5 years. The mean intelligence quotient of the group was 92. About 
half had foreign-born parents. They were a little older than the 
national NYA average and also had more school background. The 
board of public education provided three evening school counselors 
for a guidance program. They interviewed all youth. Group con- 
ferences were also held, and 52 percent of the youth voluntarily at- 
tended to hear discussion of the following subjects: Choosing an 
occupation, occupational preparation, studying ourselves, health, 
working with others, and how to keep a job. The following courses 
were offered : 

Acetylene welding. 
Arithmetic. 
Art. 

Auto mechanics. 
Beauty culture. 
Bookkeeping, advanced. 
Bookkeeping, beginning 
Business English. 
Business mathematics. 
Cabinet making. 
Calculating machines. 
Carpentry. 
Consumer education. 
Cooking. 
Current events. 
Cutting from patterns. 
Dictation 

In one of the Pittsburgh schools, a general course to provide educa- 
tion for living and working was offered. Classes were held for 3 
hours on 2 afternoons each week. Textbooks were not used. Courses 
covered a wide range of practical subjects. 

General knowledge was acquired by NYA youth as a byproduct of 
project work. For example, in the mountain areas of the South, 
white youth often could not sign their names to pay rolls. They vol- 
untarily took instruction, somtimes from other NYA youth in reading 
and writing and arithmetic. Girls on homemaking projects were 
given varying amounts of consumer information. Occasionally, NYA 
college students taught related training courses to NYA project youth. 

In those resident centers established in conjunction with educational 
institutions, a part of the cooperative agreement was that courses 
were to be set up for NYA youth and taught by faculty members. 



Drafting. 

Electricity. 

Expression. 

Health and hygiene. 

Horticulture. 

Machine Shop. 

Millinery. 

Mimeograph. 

Music appreciation. 

Occupational guidance. 

Office machine practice. 

Oral expression. 

Paper hanging. 

Power machine operation. 

Printing. 

Radio. 



FINAL REPORT, FISCAL YEARS 1936-1943 



213 



Some of the NYA youth who had high school diplomas found means 
to enroll in the regular student body and were dropped from the 
resident project. 

The United States Office of Education Provided Related Training, 1940-43 
On July 27, 1940, an agreement was signed by the United States 
Commissioner of Education and the NYA Administrator which in 
substance defined the functions of these two agencies, as follows: 

1. Through established channels of educational administration 
(vocational education), the Office of Education was to exercise leader- 
ship in developing and administering federally financed programs of; 
education, including emergency training programs (NYA), 

2. The NYA was to provide and administer the funds with which to 
support programs of student work for full-time high school and col- 
Jege students, and also employment on work projects for other young 
people, all of whom were to be provided with related or necessary 
instruction under the direction of Federal, State, and local educational 
authorities. 

3. The United States Office of Education was to be the Federal 
agency responsible for dealing directly with State educational systems 
and institutions. 

4. The Federal office of the NYA was to be responsible for dealing 
directly with its authorized agents in the States. 

5. Neither agency was to seek to secure appropriations with which 
to support activities within the States not strictly in accordance with 
the respective functions of these agencies as indicated above. 

6. Costs of personnel, supplies, equipment, and other operating 
costs for education services for NYA youth were to be borne by the 
United States Office of Education. 

7. The United States Commissioner of Education and the NYA Ad- 
ministrator assumed the responsibility for securing the acceptance of 
this definition of functions by the State educational officials and State 
NYA administrators. 

8. The State NYA administrator and the State department of edu- 
cation were to work out jointly the nature of and plan for the work, 
including the location of the project. The department of education 
was to develop a program of education suited to the needs of the youth 
employed on such projects. When the State department of education 
decided that it was not feasible to furnish instruction other than that 
received during project time, the situation was to be referred to a 
committee of three persons, jointly selected, and this committee was 
to decide whether related training was to be provided and whether 
NYA or the State vocational education department was to give it. 

The Seventy-sixth Congress made an initial supplementary appro- 
priation of $7,500,000 to the United States Office of Education under 



214 



NATIONAL YOUTH ADMINISTRATION 



the First Supplemental Civil Functions Appropriations Act, 1941, 
Public, No. 812, Seventy-sixth Congress, third session, for related 
training classes for NYA youth on regular or nondefense projects, as 
preemployment training courses were open to NYA defense workers 
in occupations essential to national defense. These defense training 
courses for youth on the regular program were offered only during 
fiscal years 1941 and 1942, at which time the regular program of NYA 
was discontinued. 

Administrative Organization Governing NYA Defense Related Training 

On May 29, 1940, the Advisory Commission to the Council of Na- 
tional Defense was established to advise on the defense program then 
being developed, to formulate defense policy, and to serve as an ad- 
visory group to all agencies engaged in the defense effort. NYA 
maintained a cooperative relationship with this council in developing 
the NYA defense program. 

As the defense program developed in magnitude, the need for an 
operating mechanism became apparent. On January 7, 1941, the Of- 
fice of Production Management was created as the over-all coordinat- 
ing defense agency within the Office for Emergency Management. 
A labor division of OPM was established on March 18, 1941. This 
division had as one of its responsibilities that of providing adequately 
trained workers at the right time and place to achieve production at 
maximum efficiency. The labor division coordinated both govern- 
mental and private activities for the recruitment, training, and ef- 
fective maintenance of qualified workers in defense industries. The 
NYA work program was part of the defense training program and 
was included as one of the agencies coordinated by the OPM labor di- 
vision. An executive order of January 16, 1942, abolished OPM and 
established the War Production Board within the Office for Emer- 
gency Management. The labor division was continued with its for- 
mer duties, responsibilities, and authority for the various defense 
training programs in operation to effect coordinated defense training 
programs. 

A National Council of Administrators was formed consisting of the 
National Administrator of NYA, the National Director of the USES, 
and the United States Commissioner of Education, or their designated 
representatives. Comparable set-ups were organized on the regional, 
State, and local levels with duties and responsibilities the same as 
those of the National Council of Administrators but limited to the 
. area m which they operated. 

The local councils gathered the data on the training needs of de- 
fense industries in their respective communities, determined where 
and what kind of training classes were to be established in line with 



FINAL REPORT, FISCAL YEARS 19 36-194 3 



215 



these needs, and were vested with the authority to approve or disap- 
prove proposals for training classes. The employment service in 
each community and State supplied each member of the council of 
administrators with the current labor demand and supply information 
on labor market developments, obtained from its registration and 
placement activities and its employer contacts. The council of ad- 
ministrators received and considered the recommendations of the em- 
ployment service as well as proposals for training programs from 
other sources such as their respective advisory committees. It was 
their duty to establish such programs wherever a majority of the coun- 
cil approved. If any member of a council did not concur in a decision 
of the council, he could appeal to the State council through the regu- 
lar channels of his State agency. A majority decision of the State 
council became immediately operative. The final determination on 
matters of defense training within the several States rested with the 
respective national offices of the constituent units working under the 
national defense training director. 

In cases where the facilities of a local community were inadequate 
to meet the local training needs of that community, the employment 
service reported the potential shortage of workers to the council of 
administrators. The council of State administrators then arranged 
for the establishment of additional facilities or selected other com- 
munities which had training facilities in excess of local needs to help 
meet the potential shortage of workers in communities where the train- 
ing facilities were inadequate. 

In certain occupations in which shortages were expected to develop 
because of pending defense contracts, training could be given in 
excess of locally known needs. The number of workers given train- 
ing in excess of known needs and the occupations in which such 
training could be given was authorized by the Director of Defense 
Training. NYA geared its projects and related training to the em- 
ployment demands as outlined above. 

Congress had appropriated moneys for five different kinds of 
training programs for the fiscal year 1941 to meet the national de- 
fense need. These five programs were all administered by the 
United States Office of Education. Two of the five applied to NYA 
youth: (1) pre-employment or refresher courses for unemployed 
persons, and (2) education and training exclusively for NYA project 
workers on the regular NYA program. NYA youth who worked 
under the NYA defense program in the machine, automotive, wood- 
working, aviation, radio, and metal shops could qualify for the 
training given under the defense preemployment program. Those 
NYA youth who were on productive work projects other than the 
mechanical and metal workshops received training under the exclusive 



216 



NATIONAL YOUTH ADMINISTRATION 



NYA defense training program for the regular program. Three 
types of training were offered under this latter program: 

1. Extension training supplementary to work experiences. This 
training supplemented the work experience the youth received on 
NYA projects ; 

2. Preparatory training for occupational adjustment. This train- 
ing included courses in blue print reading, shop mechanics, mechanical 
drawing, and supplemented the work experience that the youth re- 
ceived on NYA projects, but which NYA could not give because it 
was not actual production work. This type of training was often in- 
dicated by industry as necessary for employment. 

3. Instruction for civic and vocational intelligence. The courses 
given under this heading ranged all the way from courses in democ- 
racy, the contribution that the citizens of this democracy could make 
and the responsibilities they had to bear to courses in the history of 
the labor movement, the responsibilities of industry to labor and in 
turn the responsibilities of labor to industry. It also included courses 
on job hunting, proper appearance, approach, and the proper filling 
of application forms. 

At this time there were many thousands of NYA youth located in 
rural areas who could not avail themselves of the opportunities and 
facilities for training that existed in the larger urban areas because 
of geographical and transportation difficulties. Many of these youth 
enrolled in the defense training courses for rural youth, as individuals 
and not as NYA workers. 

Defense Related Training {or NYA Youth Workers 

Youth on defense projects were provided work experience and train- 
ing directly related to defense employment. The NYA workers re- 
ported for 8 hours a day, 5 days a week. Each shift was divided into 
two parts : one part was devoted exclusively to the NYA project work 
tinder NYA supervision; the second part of the day was devoted to 
attending defense preemployment classes especially related to the 
project work performed by the NYA youth. 

A period of intensive induction training was given youth with 
limited experience before they were put to work on the project which 
combined work and preemployment training. This induction train- 
ing enabled the new NYA youth to produce more rapidly and effi- 
ciently, and spoilage of materials and damage to equipment was kept 
at a minimum. 

The maximum number of hours youth might work each month on 
defense work projects was 160 hours, and 120 hours for youth on 
the regular NYA program. A 50-50 ratio of work and training was 
found to be the most effective type of arrangement. Since the mini- 
mum number of hours for youth on both programs was 80 hours, the 



FINAL REPORT, FISCAL YEARS 19 36-1943 



217 



remaining 40 or 80 hours were devoted as a ride entirely to training. 
Sometimes 60 hours of the remaining 80 hours were devoted to train- 
ing and the remaining 20 allocated either to defense production or to 
training as was deemed best by the NYA foreman and the vocational 
instructor. Under the NYA war production training program, youth 
were required to spend a minimum of 160 hours in work and training. 
The same general arrangement for the scheduling of hours of work 
and training remained in effect for the war production training pro- 
gram as for the NYA defense program. The number of hours spent 
in training courses varied from 8 hours a month to 40 hours a month 
depending on the nature of the courses, availability of equipment, and 
the number of youth applicants. 

Statistics compiled by the United States Office of Education show 
that total NYA enrollments in defense preemployment training classes 
were 328,500 from October 1940 through June 1943. Enrollments of 
NYA youth employed under the regular program in defense training 
classes totaled 729,780 for the period October 1940 through June 1942, 
which was when the regular program of the NYA was discontinued. 
As mentioned previously, NYA youth attended these classes on their 
own time and were only paid for time spent in actual production work 
on NYA projects. 

There were many localities and communities where the school author- 
ities did not have available facilities or personnel for the training of 
NYA youth. Also the relationship between the schools and NYA in 
some communities was such that a cooperative basis of work production 
and training could not be worked out. This was particularly true 
of resident centers that were located in isolated areas. In such cases, 
the NYA conducted and supervised the work experience and training 
in its own shops. All the youth on the defense work program and 
the subsequent war production training program took some type of 
training — defense training in the public vocational schools, on-the- 
job training in NYA projects, or training supplied by NYA in areas 
where vocational school facilities were not available. 

Health Program 

Until fiscal year 1941, NYA had no organized health program. 
Every NYA supervisor was faced with staggering health problems of 
youth. Assignments to most work projects were made with a minimum 
consideration of the physical status of individual youth. Youth might 
have communicable diseases and spread them. Only in resident centers 
and on projects cosponsored by an institution which had health 
standards and which rendered medical services itself where youth 
benefited medically from NYA employment. 

Every State administrator reported this deficiency in the program 



218 



NATIONAL YOUTH ADMINISTRATION 



and elaborate plans were drawn up to give youth health services. For 
5 years no national policy or program appeared. In individual States 
and communities, efforts were made to secure physical examinations 
and treatments. Youth, themselves, often paid for these services 
from their small earnings. In resident projects, a fee of 50 cents a 
month usually was deducted from wages to cover medical costs. Exist- 
ing group hospitalization was too expensive for these low-wage earners. 

The following are examples of how this sporadic health program 
functioned : 

In Illinois in 1938, an active program of Wassermann tests was 
initiated. Meetings of XYA youth were held and the Wassermann test 
demonstrated. Most of the youth then lost any fears they might have 
had and took the test. During the first week in May 1938. the State 
Health Department sponsored a "Health Promotion Week" and T.000 
XYA youth attended meetings to discuss youth health. 

In Louisiana, on every girl's project, lectures on hygiene and health 
were given. Flint-Goodridge Hospital provided tuberculin tests for 
all Xegro XYA workers in Xew Orleans. An attempt was made by 
the Public Health Department to raise relief payments to families 
in which youth were withdrawn from XYA work because of active 
tuberculosis. 

In June 1939. at Manchester. X. H.. TTPA provided a full-time nurse 
for individual health guidance and for health classes in communicable 
diseases. 

The State health department of Xew Jersey in 1938. in cooperation 
with the medical association, backed a health program which included 
the XYA employment of a full-time physician and assistant. This 
program called for physical examinations for all youth and follow-up 
with State and local agencies and individual doctors. 

In Cincinnati. Ohio, the mayor and city council ordered the health 
department to give medical examinations to all XYA youth free of 
charge. Personnel to complete this job was never sufficient. The Ohio 
state department sponsored lectures on personal lrygiene and venereal 
diseases. 

In Kansas, early in 1940. resident center youth received physical 
examinations for 50 cents each, and plans were made to extend this 
service to all youth workers. 

In Kentucky, early in 19-10. an XYA State health supervisor was em- 
ployed. County health officers gave all XYA youth physical examina- 
tions and approved or rejected youth for XYA work. Only very 
meager community health facilities were available for rehabilitation. 

In fiscal year 1940. the XYA Administrator gathered together the 
health data from State administrators and consulted with the Surgeon 
General of the U. S. Department of Health. A program for youth 



FINAL REPORT, FISCAL YEARS 19 36-1943 



219 



health was outlined, and the Public Health Service worked on pro- 
fessional standards and practices. 

Ustablishment of NY A Health Program 

In July 1910. the Surgeon General detailed a member of the staff 
of the Public Health Service to the NYA to direct a program of youth 
health service activities. In August of that year, the NYA Admin- 
istrator directed that 2% percent of work project funds be spent for 
a program of youth health. Physicians were appointed in each State 
as health consultants on a part-time basis. A lay person in each State 
was employed full time as a health supervisor. 

The new health program had three principles: (1) Assistance in 
the selection of youth and their work assignments, which included the 
promotion of personal health and sanitary practices; (2) constructive 
and preventative health, as exemplified by adequate nutrition and 
recreation; (3) cooperation with public health services at every level. 

Health Status of NYA Work Project Youth 

Standard outlines for physical examinations were sent to each State 
administrator. Between January and October 1941, 150,000 complete 
physical examinations were given NYA work project youth. The 
results showed that two-thirds were physically capable of any type 
of NYA work and that one-third had some defect which restricted the 
type of work to which they might be assigned. In this third, the ratio 
between the sexes was about equal. Negro and white youth also 
showed no health variations in this group. 

Because of physical condition or defects, 3 percent of all youth 
examined were pronounced unfit for any type of XYA work. In this 
group there were more male than female, more Negro than white; 
and geographically, the largest percentages were found in the South- 
ern and Southwestern States. Kural youth showed better health than 
urban. 

Dental and other oral defects — Nine-tenths of the youth examined 
had one or more health defects, and medical or dental services were 
recommended for 84 percent. When dentists assisted in the examina- 
tions, 94 percent were advised to try to procure dental treatment. 

Eighty-three percent of all youth examined had one or more un- 
treated carious teeth, and the average youth had between four and five 
teeth in some stage of decay at the time of examination. White boys 
had more carious teeth than Negro ; the average for the white females, 
however, was lower than for Negro girls. This indicated that white 
girls had experienced the greatest amount of dental care. In com- 
parison with other groups of youth, there were no marked differences 
in the total caries experienced, but NYA youth had more than twice 
as many untreated carious teeth per 100 persons as college students and 



220 



NATIONAL YOUTH ADMINISTRATION 



nearly three-fourths more than high-school youth. The dental health 
of youth in rural and urban areas showed no great differences. 

Over one-third of all youth examined by dentists had one or more 
oral defects other than decaj^ed teeth. These included tartar of me- 
dium or marked degree, gingivitis, pyorrhea, etc. 

Eye dejects. — Sixty-four percent of the youth had unassisted normal 
vision in both eyes (vision of 20/20 or better) ; three-fourths had nor- 
mal vision in at least one eye. A slightly larger proportion of girls 
had defective vision than boys. Fewer Negro than white youth had 
some degree of visual defect. 

Twenty percent of all youth examined needed glasses. Youth in 
cities needed refractions oftener than rural young people. 

Almost 6 percent of the youth had some eye disease, with the north- 
ern and western regions showing highest incidence. 

Nose and throat defects. — Using fairly rough tests, 0.9 percent of the 
examinees showed some hearing impairment in one ear; and 0.4, in 
both ears. No area reported more than 4.1 percent hearing impairment. 

Almost one-tenth showed some defect of the nose or connecting 
sinuses. This figure is high, because common colds in the head were 
included. Three and three-tenths percent suffered from chronic sinus. 
The most frequently appearing nasal defect was deviated septum of 
considerable severity. 

Diseased tonsils were found in 22.8 percent of the youth, with no 
sex differences, but with 22.1 for white and 25.9 for Negroes. The 
latter was due undoubtedly to less frequent removal previously. 
Tonsillectomy was advised for 19 percent of all youth examined. 

Weight and nutritional condition. — Eleven out of every 100 youth, 
or 15 percent, were underweight for their age, height, and sex. Physi- 
cians recommended special diets for 12.1 percent, over half of whom 
needed to increase their weight. Five and five-tenths percent weighed 
25 percent or more than normal, and between one-fifth and one-sixth 
of the diet recommedations were directed toward weight loss. Girls 
varied more than boys from the average weights. Negro boys had 
less poundage surplus or insufficiency. 

Condition of the heart. — Twenty-five of every 1,000 youth had some 
organic heart lesion. Negro males numbered 244; white males, 22. 
Negro females showed the high number of 40 heart lesions per 1,000 ; 
and white females, 24. This early diagnosis permitted these afflicted 
young people to choose training for work which could help them 
attain reasonably long and healthy lives. 

Tuberculosis. — It was not possible, because of lack of facilities, to 
give every youth a chest X-ray. A total of 13,224 were possible. In 
some States all youth with positive intradermal tuberculin tests were 



FINAL REPORT, FISCAL YEARS 1936-19 43 



221 



X-rayed. Physicians also referred others for X-ray because of par- 
ticular physical findings. Sixteen of every 1,000 youth given chest 
X-rays showed evidence of active tuberculosis. Three of these sixteen 
showed advanced cases. Because of variation in preliminary tests 
and differences of basis for X-ray-test selection, this does not give 
a correct picture of tuberculosis prevalence in NY A youth. In 6 
States attempts to give all youth chest X-rays were made. At the 
time of the tabulation of this stud}', 40 percent had been X-rayed 
Eleven youth per thousand in these 6 States showed active tubercu- 
losis. White male youth averaged 9 per thousand ; white females, 13 ; 
Negro male, 11 ; and Negro female, 12. 

Venereal disease. — Nine and six-tenths percent of 147,813 project 
youths were given blood serologic tests for syphilis. In most cases 
only one test was made, although some of the positive and doubtful 
tests were repeated. One or more positive tests were reported for 
16 of every 1,000 youth, and 3 per thousand were doubtful. In 1 per 
thousand cases, syphilis was definitely known to be present, and no 
test was necessary. Thus the average incidence of syphilis was 2 
percent. 

Young men and women 21 to 24 years old showed twice as many 
cases of infection as those 16 to 20. Only 6 white youth per thousand 
shoATed positive tests, while 71 per thousand among the Xegroes 
reacted positively. In both races, females showed a slightly higher 
rate than males. The South showed the greatest number of syphilis 
cases. 

XYA lacked sufficient facilities even for the inadequate methods of 
diagnosis of gonorrhea, and the statistics presented here are the re- 
sult of routine physical examinations and laboratory tests only for 
those thought to be infected. One white male and two white females 
per thousand were reported to have gonorrhea, as compared with 14 
Negro males and 6 Negro females. This is not a true picture of the 
existence of this disease, because laboratory testing was available 
in such a small number of cases. 

All in all, 17 of every 1,000 youth needed treatment for some vene- 
real disease. These were mostly Negro youth ( 73 of each 1,000 versus 
5 white youth per 1,000) . Kecommendations for treatment in general 
were larger in urban than in rural areas, and the greatest numbers 
of those venereally infected lived where clinical facilities were the 
most meager. 

Hookworm infection. — In the Southern States, where hookworm is 
frequent, examination of the feces was included in the physical 
check-up. Thirty-four thousand such examinations were made and 
9.5 percent infection noted. Thirteen and nine-tenths of the male 
youth had hookworms, 9.7 percent of the white girls. 6.1 percent of 



222 



NATIONAL YOUTH ADMINISTRATION 



Negro males, and only 1.3 percent of female Negroes. Boys were 
more likely to get hookworm because of greater exposure. The lower 
rate among Negroes was explained in two different ways: That the 
epidermis of the Negro offers more resistance to penetration of the 
worm; or that generations of exposure have built up greater resist- 
ance. Most doctors recommended treatment for all youth with hook- 
worm infections. 

Other diseases and dysfunctions.— -The foregoing are only the out- 
standing diseases, impairments, and conditions brought out by phys- 
ical examinations of NY A youth. In addition, inguinal hernia was 
discovered in 16 of every 1,000 males and 1 of every 1,000 females. 
Other types of hernia were found in 4 of every 1,000 youth. Phy- 
sicians prescribed hernia repair for IT of every thousand males and 

2 of every 1,000 females. 

Defects of the skin, often acne and fungus diseases, were tabulated 
for 182 per 1,000 youth. Treatments at the rate of 14 per thousand 
were recommended. 

Some mental or nervous defects, difficult to measure, were present 
in 34 of every 1,000 youth examined. Fear of examination may have 
accounted for the 10 of each thousand listed as extremely nervous. 
Mental retardation was attributed to 12 youth per thousand, but only 

3 per thousand were considered marked. Sex and race differences 
were slight, but consistently higher for females than males and higher 
for white than Negro youth of both sexes. 

Health Examinations 

Physical examinations were given on the project site, in doctors' 
offices, in clinics, and in hospitals. Each State administrator decided 
how much money was to be spent on examinations. In New York 
City, in 1942, the average cost was between $1.50 and $2. In resi- 
dent centers, the cost ran about $2. These examinations were more 
extensive and thorough than in most cases. The average cost prob- 
ably ran about $0:75 per examination. 

The majority of youth testified that their NYA examinations were 
their first contacts either with doctors or dentists. 

Follow-up Health Examinations 

Because there were many gaps and lacks in available health serv- 
ices in various communities, and because it was necessary for the NYA 
to have legal authority to expend funds for medical and dental care, 
Congress was asked to authorize the expenditure of NYA money for 
medical and dental treatment of youth. In April 1941, the House 
Subcommittee on Appropriations approved the use of NYA funds for 
medical examinations, but not for medical care except for acute ill- 
ness or injury in resident projects. Accordingly, NYA had to ex- 



FINAL REPOETj FISCAL YEARS 1936-1943 



223 



plore every source possible in each community. The following offered 
medical and dental facilities and personnel for physically needy 
youth : 

(1) Local agencies. — NYA personnel fine-combed every local 
agency for remedial physical treatment for youth. Overburdened 
clinics found their waiting rooms more crowded. In emergencies, 
NYA supervisors frequently guaranteed payment of doctors' and hos- 
pital bills, themselves. School health departments were usually in- 
adequate for their own jobs and could not even assist with examina- 
tions. The most difficult cases were the youth who were not poor 
enough to be classified as on relief or as patients for clinics and whose 
resources would not permit them to pay for private medical and 
dental care. 

(2) State, county and city public health departments —Greatest 
cooperation and specific help were secured through public health 
departments. Few had clinical facilities. Public health departments 
were especially helpful in cases of tuberculosis, hookworm, and 
venereal disease clients. 

(3) State medical and dental societies. — When physicians were em- 
ployed by NYA, state professional societies made recommenations. 
NYA administrators presented health problems to these groups. In 
almost all states, full cooperation was not obtained from these soci- 
eties. In 1940, the Section of Medical Preparedness of the Journal 
of the American Medical Association, published an article titled, "The 
National Youth Administration Contributes to the National Health," 
in which this conclusion was made : 

The cooperation of the medical and dental professions will be necessary to 
enable the NYA health program plan to succeed. As the various NYA State 
administrators approach officials and committees of State medical and dental 
societies, it is hoped that the representatives of the two professions will keep 
in mind that the NYA health program is primarily a practical health education 
effort aimed at influencing the future health practices of a group of young, out- 
of-school unemployed persons who will usually remain in NYA employment for 
only a short period. 

The method of attempting to accomplish this purpose will be through im- 
parting health information, acquainting and introducing the young people to 
the public and private health facilities available in their own State and com- 
munity, and finally by exposing them to rehabilitative health services obtain- 
able from the private practitioner either on the youth's own initiative or through 
NYA supplementation as may be indicated. 1 

The health services which the NYA youth, unused to any type of 
medical or dental experience, could obtain on his own initiative were 
scant, but this semiapproval from professional groups meant that 
few overt objections would hamper the inadequate health program. 



1 "The National Youth Administration Contributes to the National Health," Journal of 
the American Medical Association, Dec. 21, 1940, vol. 115, pp. 2185 and 2186. 



224 



NATIONAL YOUTH ADMINISTRATION 



NY A Health Care 

At large nonresident work centers, such as in Astoria, Long Island, 
and in Chicago, NYA established clinics of its own, both dental and 
medical, at the project sites.' Staff doctors were employed. It is 
interesting to note that these facilities were usually located in cities 
where general clinical opportunities were best. The small town or 
rural project could afford no such luxury. 

In several states dental and medical trucks and trailers were 
equipped and manned by NYA. In the fiscal year July 1, 1941, 
through June 30, 1942, the following mobile units were NYA pur- 
chased or made and NYA operated : 

North Carolina : Mobile chest X-ray unit and mobile dentist unit ; 

New Jersey: Portable chest X-ray unit: 

Missouri and Kentucky (these two States shared equipment) : 
Mobile chest X-ray units. In May 1942, the Missouri X-ray unit was 
declared surplus by the State and transferred to the United States 
Public Health Service for special work in connection with industrial 
hygiene in war industries; 

Oklahoma : Completely equipped dental trailer. 

Resident centers afforded the best opportunities for sound health 
programs. Of approximately 400 resident projects operated in 1941- 
42, each center had some form of health services as follows : 

About 50 large centers maintained separate infirmaries equipped, 
maintained, and staffed by NYA. Centers like Quoddy, Maine, and 
South Charleston, W. Va., employed full-time physicians and dentists. 
Other smaller centers employed part-time medical and dental per- 
sonnel. 

About 150 resident centers maintained small clinic and isolation 
rooms in some building on the project. They usually employed a 
part-time doctor or nurse. 

The other 200 resident centers had to use entirely the medical, dental, 
and hospital facilities of their communities. When the center was 
established in cooperation with an educational institution, the facili- 
ties of that institution were usually available to NYA youth. Other 
centers used Federal or local hospitals for emergency cases. 

In the centers employing full-time nurses, decreasing days of ab- 
sence from work because of illness were reported. This is the type 
of general comment made by youth workers on resident projects: 
"I've gained weight." "I have improved my outlook on life." The 
report of supervisors often contained such statements as: "A long 
outstanding handicapped condition removed and consequent employ- 
ment in industry has resulted." 



FINAL REPORT, FISCAL YEARS 1936-1943 



225 



Health Edtication 

In 1941, a series of negotiations was conducted by the national 
NYA health office and the U. S. Office of Education for specific health 
education materials. Several manuscripts were prepared and issued. 
The NYA national health office sent to all States health education 
materials such as posters, booklets, and pamphlets. In order to give 
youth important health information, informal methods were developed 
and tried by NYA staff members. 

The health examination, itself, was a great chance for education and 
experience showed that the three following methods were effective : 

(1) Pre -examination education and counseling. — Young people 
feared that the results of the examination would be used against them, 
that they would be hurt, that their sense of modestly would be of- 
fended. Women doctors were frequently employed to examine girls 
and Negroes for Negro youth. There was not one instance of objec- 
tion to physical examination because of religious prejudice. When 
youth applied for NYA jobs the value of the physical examination 
was stressed and frequently literature was handed out. In some in- 
stances, particularly for minors, the consent of parents or guardians 
was necessary and this stimulated health discussion at home and re- 
citals of family medical histories. Staff members sometimes held 
youth meetings at the projects with doctors and dentists and public 
health officials leading discussions. Youth saw health posters in of- 
fices and at project sites. In some areas, 30 to 35 percent of the young 
people failed to report for their plrysical examinations. Supervisors 
then tracked down rumors and held individual sessions with youth 
to explain the process further. 

(2) The type of examination given. — NYA tried to employ physi- 
cians who were particularly interested in this type of work. Exam- 
inations were complete so that the youth could be acquainted with 
every major body function. The average time for each examination 
was thirty minutes. The examinations were held, when possible, in 
pleasant, professional surroundings so that the youth knew the values 
of cleanliness, promptness, and became familiar with some medical 
equipment. Supervisory personnel in daily contact with the youth 
were often included in the examining program. Examination rec- 
ords were available to the youth and health personnel, but were not 
available to other personnel. This confidential nature of the findings 
pleased the youth, although it sometimes inspired fear in the project 
supervisors. 

(3) Health personnel and youth relationships. — When examina- 
tions were going on, youth met a number and variety of health per- 



226 



NATIONAL YOUTH ADMINISTRATION 



sonnel. In general, the contacts with doctors were not as productive as 
they might have been. Some physicians thought the examinations 
superfluous and others frankly said they had never before examined 
many comparatively well people. 

The most effective follow-up was the consultation with field nurses. 
About 82 percent of the youth reported for such consultations. When 
parents accompanied the youth, it was discovered that they were almost 
always willing to pay or help to pay for needed remedial work. Iu 
New York City, where skilled medical social workers were used for 
counseling and referral, it took an average of four consultations per 
youth to arrange for remedial programs. 

In the resident centers, again, the health education program bore 
the most fruit. Through their daily experiences and by counseling, 
youth learned important facts about nutrition, bodily cleanliness, 
care and prevention of illness and injury, dental hygiene, environ- 
mental hygiene, physical fitness and recreation, control of communi- 
cable diseases, proper habits of sleep, and proper clothing. 

In general, the defects of the NYA health education program were 
the divided authority between NYA and the U. S. Office of Education 
which retarded progress; the time was too short to develop high- 
quality educational techniques; and the fluctuating nature of the 
NYA program itself. A 300 to 400 percent annual turn-over of youth 
and inadequate funds made results far from ideal. 

On the credit side, youth themselves showed an eager desire for 
good health and knowledge of how to attain and maintain it. The 
number of health agencies willing to experiment with new groups 
and programs grew. The value of a health program for manpower 
for the war and production machines was demonstrated. 

Youth Recreation Service 

Youth employed on a part-time basis, as under the NYA program, 
and youth who had no jobs at all were left with many leisure hours 
at their disposal. The home of the average relief or low-income 
family was crowded and bare ; there were too few recreational areas 
or community centers nearby. Commercial amusements cost money 
which these youths did not have. Young people in the depression 
were rich in leisure time and poverty-stricken in outlets. 

NYA never succeeded in working out a broad, satisfying recreation 
program. Lack of funds, space, facilities, supervision, and commu- 
nity interest was general. Schools as a rule did not open their gymna- 
siums, auditoriums, playgrounds and athletic fields to out-of -school 
youth. NYA staff members negotiated with semiprivate agencies for 
use of their equipment and other facilities. Settlement houses re- 
sponded well. YWCAs and YMCAs were willing to help, but NYA 
youth could not pay even their low fee for use of recreational facilities. 



FINAL REPORT, FISCAL YEARS 1936-1943 



227 



NYA projects sometimes provided recreational outlets for other 
youth and children in the community. As an example, in prepara- 
tion for the "soap box derby" held annually in Akron, Ohio, NYA 
shops were open to children and NYA youth assisted them in plan- 
ning their "jalopies" and supervised their work. As a result, NYA 
youth were asked by the city to assist with the running of the "derbies." 

One of the best recreation programs was in the State of North 
Carolina. The State Department of Public Education and the NYA 
jointly planned and put it into action. An advisory committee con- 
sisted of representatives of the State Department of Public Instruc- 
tion, the State Board of Health, the City Recreation Department, the 
State Department of Conservation and Development, and the Uni- 
versity of North Carolina. Its duties were to assist the NYA recrea- 
tion supervisor to locate for use existing recreational facilities, find 
local recreational leadership, secure local support in the planning 
and execution of festivals, exhibits, pageants, and athletic contests, 
and relate the NYA recreation program for out-of-school youth to 
all other State programs. The objective of this St ate- wide program 
was to develop a variety of recreational outlets for idle youth. 
Through this program opportunities were provided for participation 
in a variety of physical activities essential to sound bodily growth 
and development of physical skills, in competitive games or sports, 
and in informal activities of youths' own choosing, such as arts and 
crafts, dramatics, music, and nature-study. 

State recreation personnel in North Carolina visited local, non- 
resident projects and helped supervisors and related training instruc- 
tors to plan programs for lunch hours which included board and 
card games, arts and crafts, and other less vigorous physical activities. 
Such pastimes plus athletic games also were organized for after- work 
hours. Where youth could take part in recreation activities on the 
project site, participation was large. Parties, wiener roasts, dances 
and other social events were possible once or twice a month. NYA 
youth brought non-NYA partners for these social occasions. The 
North Carolina State Department of Public Instruction assigned a 
specialist in social recreation and dramatics to arrange recreational 
programs for nonresident project workers. This specialist acted as 
an adviser and assisted in securing cosponsors for projects which made 
recreational equipment. Without official State support, such a broad 
recreational program as that of North Carolina could not have been 
initiated by NYA. Many States considered public recreation a super- 
fluous expenditure of funds, and public treasuries, depleted by the 
depression, could not afford the burden of recreational programs for 
underprivileged young people. 

In the resident centers, the recreation programs were on a much 
higher level. Both active and passive types of recreation were en- 

566597—44 16 



228 



NATIONAL YOUTH ADMINISTRATION 



couraged. Mai^ athletic sports and hobbies and arts and crafts 
were a daily part of the resident center schedules — baseball, basket- 
ball, football, tennis, handball, dancing, music, dramatics, hobby 
clubs, camera clubs, handicrafts, excursions, movies, forums, and the 
printing of small publications and news sheets. If the resident center 
were large enough, with 100 or more youth, the following successful 
practices were established : 

1. Assignment of a recreational director to insure continuous recre- 
ational programs and supervision. 

2. Designation of a building for recreational purposes, or if the 
center was large enough, the construction by the youth of a gymna- 
sium and auditorium. 

3. A posted schedule of recreational activities. 

4. Periodical meetings of youth committees on recreation. 

5. Organization of athletic and cultural competitive events within 
a center or between centers and with community organizations. 

6. Extensive instruction programs to teach youth to play musical 
instruments. 

7. Stimulation of hobby interest through exhibits and contests. 

8. Discussion forums at which youth and discussion leaders talked 
about subjects such as fields of employment, personal and public 
health, current economic and social problems, community, national 
and international situations. 

9. Establishment of libraries for quiet, private, leisure-time read- 
ing, with books loaned by State library extension divisions and with 
magazines and newspapers. 

10. Parties, hikes, picnics, and other social activities. 

11. Community singing, orchestras, bands, choruses. 

12. Dramatic or minstrel shows. 

13. Conferences with individual youth, especially with those who 
were shy about participating in recreational activities, so that all 
youth in the centers would enjoy some phase of recreation. 

Efforts were made to encourage participation of NY A youth in the 
life of the community, such as attendance at a local school game or 
use of public park facilities. Often resident centers held open house 
for citizens of the local community. Parents were invited to visit 
youth at centers, and girls often cooked meals for their parents, bear- 
ing the costs of the food themselves. 

In many towns and cities where space was difficult to secure, NY A 
built youth community centers. Fine stone, brick, and wood buildings 
dot Oklahoma, West Virginia, and many other States. Frequently 
NYA work projects were operated in these buildings. NYA provided 
space in these centers for small gymnasiums, auditoriums, classrooms, 
kitchens, occasionally day nurseries or medical units. Often they 



FINAL REPORT, FISCAL YEARS 19 36-1943 



229 



served the entire community for civic uses, cultural programs, and 
recreation. Where these centers were built, local youth had indoor 
and outdoor recreation space. With the demise of the NYA, com- 
munities which contributed materials and supervision acquired these 
buildings. 

When Negro or Mexican youth were employed on the same project 
with white youth, they took part in the same athletic teams, just as 
they ate at the same tables, except in the South. When segregation 
was practiced in resident centers, Negro youth used the same recrea- 
tional equipment and had the same supervision as white boys and girls. 

Some resident centers were coeducational. Then the youth ate 
together, table seating arrangements were changed frequently so that 
new friendships might be made. Kesident dances were held over week 
ends. In one resident center in Arkansas, a model four-room home 
was set up, and each 2 weeks four different girls ran this home. They 
invited boys for meals and social events, under supervision. 

In spite of the efforts of local NYA representatives, there were very 
few, if any, organized recreational programs which were continuous 
from year to year Where programs were developed, they seldom 
lasted long because of the lack of sustained community support. 

Safety and Compensation 

Until the end of fiscal year 1939, WPA was responsible for the safety 
and compensation program for NYA youth. This meant that WPA 
safety experts inspected project plans before they were approved, reg- 
ularly inspected operating projects, handled accidents and property 
damages, and carried on a limited safety campaign. For these WPA 
years, there are no separate NYA compensation claims statistics. 

In fiscal year 1940, NYA set up its own safety program. Each State 
appointed a qualified safety inspector whose duty it was to inspect 
safety conditions on projects, report hazardous conditions, make 
recommendations for improvements, see that local and Federal safety 
regulations were followed, investigate accidents and submit records 
of accidents. 

Beginning with fiscal year 1941, Congress stipulated that NYA 
turn over a specified amount of its appropriation to the U. S. Compen- 
sation Commission to cover compensation claims resulting from per- 
sonal injury or property damage because of project operation. Per- 
sonal injuries received on the project or in traveling to and from work 
in NYA cars, busses, or trucks and also in common carriers were sub- 
ject to compensation. Administrative employees were covered for ac- 
cidents incurred while at work, but not while traveling to and from 
projects. There are no complete statistics on the number of com- 
pensation claims. In 1941, 20,000 accidents, the majority of them 



230 



NATIONAL YOUTH ADMINISTRATION 



minor, were reported for compensation. As the Compensation Com- 
mission allowed a maximum of 66% percent of a youth's monthly earn- 
ings for permanent or partial disability, such as loss of an eye or mem- 
ber, the compensation paid NYA youth injured on the job was very 
small. Finally, the U. S. Compensation Commission ruled that any 
accident adversely affecting the future earnings of a minor or learner 
(NYA youth were classified as learners) was compensable, which per- 
mitted a higher compensation rate for permanent or partial disability. 
After this ruling was made, one youth was paid $1,300 for a serious 
disability. 

In the larger workshops, a safety superintendent was employed. 
State NYA safety engineers recommended that youth in individual 
shops elect safety committees to function in all aspects of safety and 
sanitation . 

Specific safety regulations were made for more hazardous work in 
quarries, gravel pits, and excavations ; in construction, especially with 
scaffolding; in woodworking and other mechanized shops; and in 
sewing and cooking projects. Each project supervisor was required 
to have a first-aid certificate and the majority of youth were required 
to take Red Cross First-Aid courses. 

In leisure-time activities, safety precautions were also observed, al- 
though NYA was not responsible for injuries received when youth 
were not at work. There could be no swimming without a life guard 
at hand. Tetanus injections were administered by a doctor after cuts 
and scratches. On the project, the water supply was analyzed for 
purity, and only certified milk was purchased or sold to youth on 
projects or at NYA recreation centers. 

Each workshop project had to have proper safety equipment, such 
as goggles, helmets, machine safety devices. Regulations were in effect 
governing lifting, lighting, ventilation, and sanitation. 

Fire prevention was a constant problem. Where valuable equip- 
ment or production was housed on NYA property, night and day 
watchmen were employed. 

Resident center youths were not covered by compensation insurance 
when they were in dormitories, at meals, or engaged in any activities 
incidental to their residence, when spectators or participants in recrea- 
tional activities; or when away from the project for personal reasons 
or without permission. In no case was the employee entitled to com- 
pensation if injury or death were caused by willful misconduct or 
intention to bring about injury or death to himself or another, or in any 
accident received while intoxicated. The U. S. Compensation Com- 
mission ruled that students employed under the student work program 
were not covered by accident insurance, as these youth were not NYA 
supervised. 



FINAL REPORT, FISCAL YEARS 1936-1943 



231 



Apprentice Training 

At the time the XYA was created, there was widespread acceptance 
that the closest relationships should be maintained between the Fed- 
eral Committee on Apprentice Training and the new XYA. The 
Federal Committee on Apprentice Training was created by Executive 
Order No. 6750-C, on June 27, 1935, for the purpose of maintaining 
apprentice training programs under the XRA codes. It was admin- 
istered by the U. S. Department of Labor, with funds provided by 
the XRA. 

When the XRA was declared unconstitutional, on August 11, 1935, 
the President transferred the Apprenticeship Committee functions to 
the XYA, which had as one of its responsibilities the promotion of 
apprenticeship. The XYA paid for the costs of administering the 
operations of the Federal Committee on Apprentice Training until 
August 1937, at which time the functions of the Committee were trans- 
ferred to the Department of Labor. Subsequently, the Congress ap- 
propriated funds to the Department of Labor for continuation of the 
activity of the Federal Committee on Apprenticeship. 

The XYA at no time assumed any administrative supervision of 
the Federal Committee on Apprentice Training but only provided 
funds for its continuance. The value of the support of the XYA was 
in maintaining the functions of the Committee until such time as they 
were authorized by Federal statute. 

Among the first instructions sent to State directors by the Executive 
Director of the Xational Youth Administration was a definition of 
apprenticeship and a statement of the policies which had been estab- 
lished by the Federal Committee with regard to apprenticeship. In 
these instructions, the distinctions between apprenticeship and other 
forms of "learning through doing" were pointed out. 

State XYA directors were requested to assist in promoting the 
services of the State apprentice committee in the following ways: 

1. By regular attendance at State committee meetings. 

2. In talks with civic, educational, employer, and employee groups 
by stressing the desirability of cooperating with the State apprentice 
committees. 

3. By helping impress the youth of the State with the vital im- 
portance of having all trade-learning arrangements approved by the 
State committee on apprentice training. 

4. By frequent conferences with members of State committees to 
ascertain activities which can be undertaken in the interest of ap- 
prentice training. 

5. By interpreting the needs of the youth of the State to the 
apprentice committees. 



232 



NATIONAL YOUTH ADMINISTRATION 



In the States where there were apprentice committees, the NYA 
State youth director was asked by the Secretary of Labor to serve as a 
member of the State committee. A representative of the Washington 
office was appointed to the Federal Committee. 

After the transfer of the Federal Committee on Apprentice Train- 
ing to the Department of Labor by Congress, working relationships 
were maintained until the liquidation of the NYA. j 



• X • 

Summary and Conclusions 

The National Youth Administration was created in the middle of 
a decade of national nonproductiveness. The wheels of industry had 
slackened. The clamoring needs of a great segment of the popula- 
tion for work were unmet, and despair dwelt in the hearts of men. 
Millions of the Nation's youth were caught at the bottom of the lad- 
der, unable to take the first step toward adulthood. 

The first years of economic and social depression were filled with 
intermediate measures to alleviate the distress of family groups. 
Thus the problems of youth were subordinated to broader implica- 
tions of the financial and social depression. Finally, leaders in edu- 
cation, industry, labor, and Government became acutely aware of 
what was happening in Europe, where Fascism had progressed alarm- 
ingly and youths' aggressive energies were being exploited by ruth- 
less leaders determined to use the world-wide economic disturbances 
to their own ends. The Nation's leaders recognized that the wide- 
spread idleness of youth was fraught with grave social consequences. 

No American citizen wanted a "domestic fuehrer" to consolidate the 
Nation-wide discontent of the youth and use this restlessness for un- 
desirable changes in the American way of life. Five million unem- 
ployed youth in 1933 represented a potentially dynamic situation 
which could not be ignored. The first Nation-wide step in the recog- 
nition of the youth problem was taken in 1933 with the establishment 
of the CCC, which raised the hopes of young people desperately eager 
for a chance to assume their normal responsibilities in life. In 1935, 
in further consideration of this major national problem, the Presi- 
dent of the United States created the National Youth Administra- 
tion, because "the Nation could ill afford to lose the skill and energy 
of these young men and women." The President reconfirmed the 
basic concept of American opportunity when he said that "they must 
have their chance at school, their turn as apprentices, and their oppor- 
tunities for jobs — a chance to work and earn for themselves." 

To this end, and without any of the implications of regimentation 
already demonstrated by Germany and Italy, NYA was initiated to 
provide opportunities to needy young men and women for the con- 
tinuance of their education and to gain needed work experience. 
This youth program was operated in accordance with democratic 
principles of decentralization so deeply ingrained in our American 
way of life. 

233 



234 



NATIONAL YOUTH ADMINISTRATION 



NYA was in operation 8 years, from June 26, 1935, to June 30, 
1943. A total of $662,300,000 was expended, of which $467,600,000 
went for the payment of wages for the employment of needy, unem- 
ployed, out-of -school youth and $169,500,000 in wages to needy young 
persons in order that they might continue their education. This ex- 
penditure of Federal funds enabled the employment of 4,800,000 
young people, of which 2,700.000 were given work experience and 
training on work projects producing useful goods and services and 
over 2,000,000 were school, college, and graduate students on work 
in public and semipublic non-profit-making institutions. 

The types. of work which these youth performed were at no time 
dictated by NYA officials, except as related to defense and war needs. 
In the case of the out-of-school work program, projects were initiated 
when State or local public agencies cosponsorecl projects of benefit to 
the community and to the youth who were to be employed. These 
public cosponsors contributed $61,600,000 in materials, supplies, and 
supervision. The resident projects brought together rural and urban 
youth in an environment of work activity and cooperative living which 
they helped to maintain through their own earnings and which were 
supervised by persons who endeavored to relate on a practical basis 
a living and work experience under adequate living and working 
conditions. Individual youth were physically and mentally rehabili- 
tated and were prepared for assuming normal responsibilities ol 
adulthood. 

The out-of-school work program not only provided financial as- 
sistance to almost 3 million needy, unemployed, out-of-school youth, 
but also initiated definite measures to improve the health of the youth 
employed, and to give them work experience which developed good 
work habits and work responsibilities in preparation for employment 
in a variety of services and occupations. They were given related 
training of both a general and specific kind which supplemented their 
on-the-job experience. Guidance and counseling services were pro- 
vided to assist youth in selecting work for which they were qualified 
and to adjust to work demands. Assistance was also given in finding 
employment after the youth had learned the fundamentals of a par- 
ticular type of work. XYA directed its youth workers to healthy 
recreational outlets, organized and promoted recreational projects, and 
built additional recreational facilities. 

The out-of-school work program was based on the judgment that 
work, though more costly in money outlay, was definitely preferable 
to direct relief benefits. Payment of wages for work performed un- 
questionably gave youth a sense of security and of confidence in their 
ability to produce. The 500-odd resident projects operated by XYA 
provided youth with a basic work experience in group living and 



FINAL REPORT, FISCAL YEARS 19 36-1943 



235 



democratic self-government. The varied work experience which 
youth received on these projects, as well as the individual responsi- 
bilities of contributing to the requirements of general living, pro- 
duced an individual assurance which these underprivileged youth 
would probably never have obtained in the particular community cir- 
cumstance in which they had lived. 

The extensive placement of XYA youth into private employment 
opportunities and the acceptance of these youth as well-trained work- 
ers by their employers was a further indication of the validity of the 
work experience which they had obtained on XYA work projects. 

Xot only did the student work program help over 2 million students 
to continue their education in schools, colleges, and universities, but the 
work performed by these students enabled the educational system to 
operate more efficiently when institutional budgets were curtailed 
because of depression conditions. The development of planned work 
programs for students, integrated with the needs and interests of both 
the students and the schools, helped to remove the cloistered atmos- 
phere from general education by giving many students a practical 
work experience and by developing an awareness on the part of edu- 
cators of the value of combining work and educational experience. 
The student work program was a significant new method of helping 
to realize the American goal of educational opportunity for all. By 4 
making payments direct to students in return for work performed, 
a systematic effort was made to increase the future employability of 
these students through providing work experience and through the 
development of basic work habits and attitudes which helped them 
later in obtaining employment and in advancing them in their chosen 
fields. 

Of primary significance to the carrying out of democratic principles 
was the consistent attitude of XYA officials toward nondiscrimina- 
tion. Conscientious efforts were made to give Xegroes and youth 
of other equally important minority groups opportunities for obtain- 
ing work experience and for continuation of their education. XYA 
was fully cognizant that democratic ideals and institutions might only 
be maintained by providing opportunities for minority participation 
in a Federal program. 

The fact that NYA trained thousands of youth in machine opera- 
tions for employment in essential defense and war occupations was 
added proof of its foresight in ready adjustment of its approach to 
work experience needs of the untapped reservoir of untrained youth. 

Through a system of local nonpartisan and voluntary advisory 
committees, and through the employment of skilled supervisors, XYA 
prepared its j^outh workers for adjustment to the requisites of modern 
industry. 



236 



NATIONAL YOUTH ADMINISTRATION 



The decentralized administration of NYA permitted flexibility in 
initiating projects which were planned in accordance with local com- 
munity employment outlets and local community needs. The delega- 
tion of responsibility to the educational institutions participating in 
the student work program in the selection of needy students and the 
planning and supervision of the work which these students did was 
further evidence of the success in decentralization of NYA admin- 
istration. Throughout its eight years of existence, NYA admin- 
istered its programs for youth in accordance with accepted concepts 
of State and local determination and exercised broad administrative 
controls only with respect to fiscal control and youth eligibility 
requirements. 

When the crisis of war arose, the people of the United States faced 
the fact there could be no half-way measures in the waging of success- 
ful warfare. An enormous expenditure of life and materiel was 
demanded. How incongruous that the value of youth should be at 
a premium in a war period. Their physical strength and hardiness, 
their courage, their daring, and their aggressiveness are the backbone 
of modern mechanized warfare. Great responsibilities have been 
assigned to youth in this fateful war and they have assumed their 
role with unflinching courage. As to the future, each responsible 
citizen must consider long and well what will be in store for youth — 
their future place in the social and economic order. 

The lessons of the past need reviewing so that future measures 
taken because of the needs of youth for work and education can be 
used in shaping the action required for the best social ends of the 
next generation. Each responsible citizen must realize that the social 
and economic order may become periled if sufficient employment op- 
portunities are not achieved to absorb youth into the economic and 
social fabric of the Nation. The hopes of the coming generations 
cannot be jeopardized. 

It has not been the purpose of this report to indicate what may be 
desirable government, labor, industrial, or agricultural programs for 
youth in the future. This requires continued planned study. The 
extent of employment for the total labor force will have direct con- 
sequences for 7/outh ready to assume responsibilities of adulthood. 
The extreme disparity in existing school opportunities will present 
another immediate test of the capacity of this Nation to act in the 
post-war era. The Nation cannot afford to neglect the development 
of programs for mental and physical fitness for youth, for adequate 
recreational facilities, and for extensive vocational guidance and 
placement. Basic public actions and attitudes must consider the needs 
of its youth. 



APPENDIX A 



National Committees 

Members of the NYA National Advisory Committee 

(Fiscal years 1936-43) 

The Hon. Adolph Augustus Berle, Jr., Assistant Secretary of State. 

Department of State. Washington^ D. C. 
Mrs. Mary McLeocl Bethune, president, Bethune Cookman College, 

Daytona Beach, Fla. (Director, Division of Negro Affairs, NYA). 
Miss Selnia Borchardt, vice-president, American Federation of 

Teachers, 1741 Park Road XW., Washington. D. C. 
Mr. Frank L. Borden. Headmaster, Deerfield Academy, Deerfield, 

Mass. 

Mr. Howard S. Braucher, secretary. National Kecreation Association, 

315 Fourth Avenue, New York City. 
Mr. Louis Brownlow, director. Public Administration Clearing House, 

850 East Fifty-eighth Street. Chicago. HI. 
Dr. W. W. Charters, director, Bureau of Educational Research, Ohio 

State University, Columbus, Ohio. 
Dr. Glenn Cunningham, director of student health, Cornell College, 

Mount Vernon, Iowa. 
Mr. Henry Dennison. president, Dennison Manufacturing Co., Fram- 

inghani, Mass. 
Amelia Earhart, deceased. 

Miss Esther Ekblad, member, National Junior Council Farmers Ed- 
ucational and Cooperative Union of America, Salina, Kans, 
Mr. Kenneth Farrier, deceased. 

Mr. William E. Green, president. American Federation of Labor, 
901 Massachusetts Avenue NW., Washington. D. C. 

Mr. George Harrison, grand president, Brotherhoo'd of Railway and 
Steamship Clerks. Brotherhood of Railway Clerks Building, Cin- 
cinnati, Ohio. 

Mr. James R. Herrington. Jr.. NYA Resident Center. College Park, 

Ga. (NYA youth). 
Mr. Sidney Hillman. president, The Amalgamated Clothing Workers 

of America. 15 Union Square, New York City. 
Rev. George W. Johnson, director, department of education, National 

Catholic Welfare Conference, Washington, D. C. 
Dr. Mordecai Johnson, president, Howard University, Washington, 

D. C. 

237 



238 



NATIONAL YOUTH ADMINISTRATION 



Dr. Charles H. Judd, head, department of education, University of 

Chicago, Chicago, 111. 
Dr. Dexter M. Keezer, president, Keed College, Portland, Ore. 
Mr. Carroll M. Leevy, International and Inter-racial Fellowship, 

1831 Taylor Street, Columbia, S. C. (Negro youth). 
Dr. Ernest H. Lindley, deceased. 
Mr. Bernarr MacFadden, publisher, Newark, N. J. 
Bishop Francis J. McConnell, resident bishop, Methodist Church 

New York Area, 150 Fifth Avenue, New York City. 
Mr. Thomas J. Mclnerney, deceased. 

Rev. Edward Roberts Moore, Catholic Charities of the Archdiocese 
of New York, 485 Madison Avenue, New York City. 

Mrs. Elinor F. Morgenthau, third vice-president. Washington Self- 
Help Exchange, 2211 Thirtieth Street NW., Washington, D. C. 

Miss Louise Morley, conference secretary. International Student Serv- 
ice, 8 West Fortieth Street, New York, N. Y. 

Dr. Elizabeth Morrissy, professor of economics, College of Notre 
Dame of Maryland, Baltimore, Md. 

Mr. Thomas Neblett, War Labor Board, Washington, D. C. 

Mrs. Julia O'Connor Parker, financial secretary of local, International 
Brotherhood of Electrical Workers, 500 Boyleston Street, Boston, 
Mass. 

Mr. James G. Patton, national president. Farmers' Educational & 
Cooperative Union of America, 1441 Welt on Street, Denver, Colo. 

Dr. Clarence Poe, editor, Progressive Farmer, Raleigh, N. C. 

Dr. David deSola Pool, Spanish and Portuguese Synagogue, 99 Cen- 
tral Park West, New York City. 

Mr. Mervyn Rathborne, secretary-treasurer, California State C. I. O. 
Council, San Francisco, Calif. 

Miss Agnes Samuelson, Secretary, Iowa State Teachers Association, 
415 Shops Building, Des Moines, Iowa. 

Miss Mae K. Sargent, Catholic Welfare Bureau, 333 West Second 
Street, Los Angeles, Calif. 

Dr. William F. Snow, special consultant, United States Public Health 
Service, 464 Riverside Drive, New York, N. Y. 

Mr. Charles W. Taussig (chairman), president, American Molasses 
Co., 120 Wall Street, New York City. 

Miss Rose Terlin, YWCA, New York City. 

Mr. M. W. Thatcher, general manager, Farmers Union Grain 
Terminal Association, 1923 University Avenue, St. Paul, Minn. 

Miss Florence Thorne, director of research, American Federation of 
Labor, 901 Massachusetts Avenue NW., Washington, D. C. 

Dr. David E. Weglein, Superintendent of Public Instruction, Balti- 
more, Md. 



FINAL REPORT, FISCAL YEARS 1936-194 3 239 

Mr. Owen D. Young, chairman of the board, General Electric Co., 570 

Lexington Avenue, New York City. ■ 
Dr. George F. Zook, president, American Council on Education, 744 

Jackson Place, Washington, D. C. 

NYA National College Work Council 
Members (1942-43) 

Dr. S. L. Crawley, director of personnel, Colorado State College of 

Education, Greeley, Colo. 
Dr. Walter C. Eells. executive secretary, American Association of 

Junior Colleges, Washington, D. C. 
Mr. Lewis Jackson, dean, City College of New York, New York City. 
Dr. Roben J. Maaske, president, Oregon College of Education, La 

Grande, Oreg. 

Dr. Roscoe Pulliam, president, Southern Illinois Normal University, 
Carbondale, 111. 

Dr. James H. Richmond, president, Murray State Teachers College, 
Murray, Ky. 

Dr. Gould Wickey, secretary, Church Related Colleges, Washington, 
D. C. 

Dr. George S. Miller, vice president, Tufts College, Medford, Mass., 
representative NYA regions I and II. 

Dr. Levering Tyson, president, Muhlenberg College, Allentown, Pa., 
representative, NYA region III. 

Dr. Joseph Rosier, president, Fairmont State Teachers College, 
Fairmont, W. Ya., representative, NYA region IV. 

Dr. B. L. Straclley, dean, College of Liberal Arts, Ohio State Uni- 
versity, Columbus, Ohio, representative, NYA region Y. 

Dr. C. E. Ragsdale, school of education, University of Wisconsin, 
Madison. Wis., representative, NYA region VI. 

Dean R. C. Beaty, chairman, University of Florida, Gainesville, Fla., 
representative NYA region VII. 

Mr. Cyril W. Grace, president, Mayville State Teachers College, May- 
vflle, N. Dak., representative, NYA region VIII. 

Dr. M. L. Wardell, University of Oklahoma, Norman, Okla., repre- 
sentative, NYA region IX. 

Dr. L. H. Hubbard, president, Texas State College for Women, Denton, 
Tex., representative, NYA region X. 

Dr. Harl Douglass, head, department of education, University of 
Colorado, Boulder, Colo., representative, NYA region XL 

Dr. A. S. Raubenheimer, dean, College of Letters, Arts and Sciences, 
University of Southern California, University Park, Calif., repre- 
sentative, NYA region XII. 



240 



NATIONAL YOUTH ADMINISTRATION 



NY A National School Work Council 
Members (1942-43) 

Mr. Paul E. Elicker, executive secretary, National Association of 
Secondary-School Principals, 1201 Sixteenth Street NW., Wash- 
ington, D. C. 

Mr. A. C. Flora, Superintendent of Schools, Columbia, S. C. 

Dr. Paul B. Jacobson, chairman, principal, University High School, 

University of Chicago, Chicago, 111. 
Mr. Paul A. Eehmus, superintendent of schools, Lakewood, Ohio. 
Mr. Irvin E. Rosa, superintendent of schools, Rochester, Minn. 



APPENDIX B 



Supplementary Tables 

Table 1. — Federal funds expended* for the operation of the National Youth 
Administration programs, fiscal years 1936 through 1943 



Fiscal year 



1936 
1937 
1938. 
1939. 
1940 
1941 



1942 combined programs 



Regular program 
Defense program. 



1943 



Grand total 



1 Data for the fiscal years 1936 through 1939 are actual expenditures derived from Treasury voucher 
payments. Figures for the fiscal years 1940 through 1943 are encumbrances obtained from NYA finance 
reports. 

2 Funds expended for administration for fiscal years 1936 through 1939 were included in amounts expended 
by the Work Projects Administration. 

s Data not available. 



Total 


Out-of- 
school work 
program 


Student 
work pro- 
gram 


Adminis- 
tration and 

printing 
and binding 


Funds trans- 
ferred to 
Treasury 

Department 
and U. S. 

Compensation 

Commission 


$39, 255, 491 
63, 391, 102 
52, 231, 814 
75, 204, 937 
99, 394, 671 

155, 060, 599 


$15, 209, 751 
35, 394, 243 
33, 536, 759 
53, 821, 593 
67, 173, 511 

118, 994,018 


$24. 045, 740 
27, 996, 859 
18, 695, 055 
21, 383, 344 
27, 254, 294 
27, 521, 673 


( 2 ) 
( 2 ) 
( 2 ) 
( 2 ) 

$4, 966, 866 
7, 521, 194 


( 3 ) 
( 3 ) 
(») 

. ( 3 ) 
( 3 ) 

$1, 023,714 


121, 175, 182 


96, 934, 212 


16, 180, 392 


6, 873, 133 


1, 187, 445 


69, 152, 891 
52, 022, 291 


47, 680, 070 
49, 254, 142 


16, 180. 392 


4, 455, 428 
2,417, 705 


837, 001 
350, 444 


56, 608, 085 


46, 522. 308 


6, 461, 497 


3, 205, 491 


418, 789 


662, 321, 881 


467, 586, 395 


169, 538, 854 


22, 566. 684 


2, 629. 948 



FINAL REPORT, FISCAL YEARS 1936- 



1943 




242 



NATIONAL YOUTH ADMINISTRATION 



Table 3. — Federal funds expended 1 for the operation of the NY A out-of-school 
u-ork program, and the NY A student tvork program by states, fiscal years 1936 
through 1943 



State or Territory 


Total 


Out-of-school 
work pro- 
grams 2 


Student work 
program 


. 

Grand total 


$637, 125, 249 


$467, 586, 395 


$169, 538, 854 


Alabama „ 


13, 355, 463 


10, 346, 294 


3, 009. 169 


Arizona.. _ ... ... 


2, 388, 785 


1, 617, 853 


770, 932 


Arkansas __ . . . 


11, 469, 535 


9, 440, 882 


2, 028, 653 


California. . .. _ . . . 


25, 540, 495 


15, 778. 045 


9, 762, 450 


Colorado. -_____•-_ _______ 


6, 335, 712 


4, 214, 530 


2, 121, 182 


Connecticut. ____________ 


6, 096, 294 


4, 779, 994 


1, 316, 300 


Delaware.. . ____ _____________ ■-_.__ 


794, 928 


618, 877 


176, 051 


District of Columbia.. . _____ ... 


2, 722, 84 7 


1, 645, 835 


1, 077, 012 


Florida ._ ... 


8, 895. 529 


6, 961, 507 


1, 934, 022 


Georgia. ... _________ _ 


16, 745, 685 


12, 757, 985 


3, 987, 700 


Idaho.. ______ ._ _ . 


3, 699, 096 


2, 753, 488 


945. 60S 




St, 823, o9o 


27, 919, 697 


9, 903, 898 


Indiana.. .... _____ 


15, 033, 162 


10. 792, 031 


4, 241, 131 


Iowa... . . . . _ 


in a on no i 
10, 430, 981 


— n~n c„o 

7, 0o9, 562 


3, 371, 419 


Kansas ______________ __"__ 


11, 786, 665 


8, 172, 570 


3, 614, 095 


Kentucky __;___ . _ 


15, 931, 988 


12, 373, 021 


3, 558. 967 


Louisiana ..... ____ . ___ ______ 


12, 039, 066 


9, 146, 955 


2, 892. Ill 


Maine ____ ____■' _ 


6, 013, 173 


5, 189, 564 


823, 609 


Maryland. . __ _ 


5, 855, 109 


4, 262, 578 


1, 592, 531 


Massachusetts. ... . — __.. _ ... 


18, 323, 284 


13, 691, 656 


4, 631, 628 


Michigan.. . __ __ __ ___ . _ 


23, 589, 071 


17, 292, 385 


6, 296, 686 


Minnesota.-. _ . _ _ ___ 


14, 317, 097 


10, 312, 393 


4, 004, 704 


Mississippi. .... _ ... 


10, 711, 364 


8, 481, 479 


2, 229, 885 


Missouri. .... _____ ■'____ 


17, 443, 876 


12. 647. 546 


4, 796, 330 


Montana.. - _ __________ __ _ 


3, 637. 294 


2, 433, 767 


1, 203, 527 


Nebraska. _ _ _ ________ 


6, 844. 132 


4, 634, 045 


2, 210, 087 


Nevada.. ... _ __'_"■_ 


373, 742 


239, 477 


134, 265 


New Hampshire. ... _ ..... 


2, 262, 020 


1, 696, 440 


565, 580 


New Jersey 


16. 575, 102 


13, 197. 522 


3, 377, 580 


New Mexico.. .... _ _____ 


3, 603, 289 


2, 893, 197 


710, 092 


New York City 


31,955. 554 


22. 356, 272 


9, 599, 282 


New York (excluding New York City) 3 - ______ 


28, 855, 977 


22. 036, 808 


6, 819, 169 


North Carolina.- __ 


16, 053, 173 


11, 900, 484 


4, 152, 689 


North Dakota ... _ _ _. 


5, 267, 558 


3, 629. 758 


1, 637, 800 


Ohio. . _ __ _ _ __ __ _ 


30, 730, 130 


22, 254, 810 


8, 475, 320 


Oklahoma. _ . _______ 


18, 344, 832 


13, 353, 201 


4. 991, 631 




4, 217, 301 


2, 725, 922 


1, 491, 379 


Pennsylvania ___ J ______■ ._ 


47, 998, 272 


36, 019, 468 


11, 978, 804 


Rhode Island.. ... 


2, 909, 109 


2, 131, 058 


778, 051 


South Carolina _ . _ . ___________ 


9, 493, 594 


6, 927, 730 


2, 565, 864 


South Dakota. 


5, 954, 102 


4, 053, 891 


1, 900, 211 


Tennessee _____ _ 


13, 202, 254 


9, 556, 520 


3, 645, 734 




32, 077, 850 


23, 518, 180 


8, 559, 670 


Utah... . . ___._.__ 


3. 889. 104 


2, 442, 202 


1, 446, 902 


Vermont. _ _________ ______ 


1,519, 891 


1, 053, 471 


466, 420 




11,845, 142 


8, 699, 891 


3, 145, 251 


Washington. 


8. 254, 199 


5, 619, 597 


2, 634, 602 


West Virginia 


13, 371, 541 


10, 875. 793 


2, 495, 748 


Wisconsin.. . _L__ . _ _ __ 


16, 661, 235 


12, 099, 203 


4, 562, 062 


Wyoming _ _-_...__- _____ _ _ _ 


1, 239, 956 


914, 784 


325, 172 


Alaska 


34, 651 


16. 140 


18, 511 


Hawaii..- _. ___ : _-_ _____ 


326, 899 


67, 371 


259. 528 


Puerto Rico and Virgin Islands _ ... . _ ... _ 


2, 123, 819 


1, 821, 969 


301, 850 


Not allocated to specific States 4 _ - _.__ 


160. 697 


160, 697 









1 Data for fiscal years 1936 through 1939 are actual expenditures derived from Treasury voucher payments. 
Figures for the fiscal years 1940 through 1943 are encumbrances obtained from NY A finance reports. 

s Includes Federal funds expended for the operation of the regular out-of-school work program and the 
youth work defense program during fiscal year 1942. 

3 Includes Federal funds expended in New York City during fiscal year 1943. 

* Includes Federal funds expended which were not allocated to specific States. 



FINAL REPORT, FISCAL YEARS 1936-1943 



243 



Table 4. — Number of NY A administrative employees 1 and total and average 
monthly earnings, fiscal years 1940 through 1943 



Grand total 



Fiscal year 



Number 



Amount- 



Average 
monthly 



Washing- 
ton office 



Field 



Total 



State 
offices 



Regional 
Office 



1939 

July 

August 

September 

October 

November 

December 

1940 

January 

February 

March 

April 

May 

June 

July 

August 

September 

October 

November 

December 

1941 

January 

February 

March 

April 

May 

June 

July 

August 

September 

October 

November 

December 

1942 

January 

February 

March 

April 

May 

June 

July - — 

August 

September 

October 

November 

December 

1943 

January 

February 

March 

April 

May 

June 



1,814 
1, 905 
1, 928 
1, 963 
1,948 
1, 963 



1, 977 
1, 961 

1, 968 

2, 050 
2, 050 
2, 091 

2, 120 
2, 115 
2, 142 
2,289 
2, 691 
2, 931 



3. 038 
3, 198 
3. 261 
3, 486 
3. 633 
3, 730 

3, 503 
3, 206 
3, 105 
3,018 
2, 960 
2, 622 



2, 418 
2, 349 
2, 314 
2, 270 
2. 284 
2, 196 

1, 377 
1, 054 



931 
919 



918 



882 
918 
916 



$277, 722 
290, 401 
294. 095 
296, 266 
298, 096 
298, 200 



299, 119 
288, 908 
281, 091 

287, 476 

288, 873 
293, 567 

303, 985 
311, 943 
315, 418 
329. 615 
389, 079 
432, 933 



455. 678 
475. 750 
489, 750 
529, 121 
570, 197 
591, 874 

537, 376 
527, 302 
505, 710 
493, 370 
487. 795 
449, 619 



414. 620 
386, 017 
395, 146 
393, 731 
395, 131 
391, 254 

296, 057 
233, 075 
209, 846 
198, 877 
198. 970 
192, 674 



214, 849 
212, 720 
208. 930 
210. 931 

219, 360 

220, 773 



$153. 91 
152. 44 
151.09 
150.39 ' 
150. 82 
150. 41 



150. 08 

145. 07 
139. 60 

137. 58 

138. 81 
138. 21 

141. 29 
135. 21 
135. 80 
144. 85 
144. 65 

146. 24 



146. 14 
146. 68 
146.98 I 
149. 70 ' 
153.65 | 

155. 79 1 

147.83 

156. 84 
157.39 I 
158.36 | 
159. 70 
159. 27 



161. 39 
159. 48 
165. 33 
168. 12 

169. 95 

170. 33 

172. 32 
184. 98 
190. 77 
194. 98 
201.49 
200. 39 



223. 22 
231.47 
231. 76 
233. 72 
236. S9 
236. 25 



181 
189 
192 
195 
199 
205 



203 
199 
197 



206 

201 
207 
227 
242 
266 



320 
328 
360 
380 
394 

387 
379 
380 
364 
352 
324 



302 
295 
305 
288 
293 
294 

290 
258 
244 
231 
232 
222 



218 
213 
205 
200 
202 
206 



1,633 
1, 716 I 
1,736 | 



1,774 I 
1,762 | 
1,771 I 
1, 854 
1, 852 
1, 885 

1, 919 
1, 908 

1, 915 

2, 047 
2. 425 
2, 652 



2. 732 
2. 878 

2. 933 
3. 126 

3, 253 
3, 336 

3, 116 i 

2,827 , 

2, 725 ! 
2, 654 

2. 608 . 
2, 298 



2, 116 
2, 054 
2, 009 
1. 982 
1,991 
1, 902 



,087 
796 
723 
705 
699 
697 



700 



111 ; 

682.!. 
716 . 
710 . 



1, 633 
1, 716 
1,736 
1,768 
1,749 
1.760 



1, 774 
1,762 
1,771 

1, 854 
1,852 
1,885 

1,900 
1,888 
1.894 

2, 021 
2, 385 
2,611 



2,684 
2, 830 

2. 869 
3,052 
3, 173 

3, 248 I 

3,027 i 
2,735 I 
2, 638 I 
2.571 ! 
2,524 
2, 216 



2.046 I 
1,988 ! 
I. 943 
1, 918 j 
1, 927 
1, 837 



48 



723. 
705 



697 



700 
669 
675 
682 
716 
710 



i Number of administrative employees in pay status on the last day of the month. 



500597—44 17 



244 



NATIONAL YOUTH ADMINISTRATION 



Table 5. — Number of students employed on the student work program and total 
earnings by month, United States and territories, September 1935 through 
May 1943 





Number of students 


employed 


Earnings 


jviontn 




School 


College 


Graduate 




School 


College 


Graduate 




Total 


work 


work 


work 


Total 


work 


work 


work 







program 


program 


program 




program 


nr/tc^ram 

±Jl U£l CXU-l 


program 


1935 




















September 


34, 924 


26, 163 


8 


700 


61 


$221, 210 


$141, 489 


$79, 286 


$435 


October 


183, 594 


75, 033 


104 


969 


3, 592 


1, 652. 834 


391, 278 


1, 197. 875 


63. 683 


November... 


234, 450 


118, 273 


111 


500 


4, 677 


2, 094, 889 


618, 659 


1, 385. 286 


90 944 


December.. 


282, 829 


159, 158 


118 


453 


5, 218 


2, 394,' 570 


837,' 940 


l! 456! 897 


99! 733 


1936 




















January 


320 ; 522 


196, 509 


118 


575 


5.438 


2, 528, 315 


1. 025, 921 


1, 400, 349 


102, 045 


February 


359, 559 


231, 802 


122 


396 


5. 361 


2, 865, 222 


I, 241, 786 


1, 520, 082 


103 354 


March 


392, 975 


262, 824 


123, 


357 


6,' 794 


3! 098! 859 


l! 409! 356 


l! 555,' 307 


134! 196 


April 


416, 948 


281. 498 


128 


055 


7, 395 


3. 295, 017 


1, 526. 850 


1. 624, 506 


143. 661 


May 


401, 344 


266. 763 


127, 


827 


6, 754 


3, 579, 684 


] , 543, 249 


1, 890, 703 


145 732 




214, 603 


127, 121 


80, 


932 


6,' 550 


1,841, 990 


' 700! 870 


l! 020! 021 


121,' 099 


July - 


239 


239 








790 


790 






August 


1, 707 


1, 707 






7, 076 


7, 076 






September 


62, 969 


52, 155 


10, 


730 


84 


341, 543 


224! 162 


116, 084 


1, 297 


October 


341, 583 


207. 954 


128, 


771 


4, 858 


2, 518, 444 


943. 473 


1, 477, 459 


97, 512 


November ... 


400, 253 


257, 475 


137, 


250 


5 528 


3, 127, 131 


1. 241, 860 


1, 754, 847 


130 424 


December 


412, 210 


270, 464 


13«, 


572 


5', 174 


3! 138,' 856 


l! 308! 823 


l! 707,' 765 


12Z 268 


1937 




















January 


418, 721 


276, 584 


136, 


733 


5, 404 


2, 977, 550 


1, 288, 119 


1, 568, 884 


120, 547 


February - 


428, 818 


283, 738 


139, 


541 


5 539 


3, 236 888 


1 358, 525 


1, 753, 901 


1 24 462 


March 


442, 100 


294! 456 


142, 


127 


5^ 517 


3! 326! 448 


l! 414! 636 


l! 787! 090 


124! 722 


April - 


443. 986 


297, 871 


140, 


699 


5, 416 


3, 362. 653 


1, 456, 068 


1, 780, 225 


126, 360 


May 


425, 694 


280 427 


139, 


841 


5 426 


3, 653, 116 


1, 503. 870 


2, 015. 375 


133, 871 




249. 826 


153,' 168 


92, 


382 


i276 


l! 996! 086 


' 797! 911 


l! 102! 908 


95! 267 


July 




















August ... . 


36 


36 






144 


144 






September 


36, 581 


31, 758 


4, 


68S 


135 


163, 822 


120, 128 


41, 135 


2, 559 


October^ ... 


244, 648 


155, 793 


86, 


831 


2, 024 


1, 601, 617 


646, 118 


923, 438 


32, 061 


November 


284 535 


189, 180 


93, 


037 


2, 318 


1 984 964 


834 887 


1, 108 988 


41 089 


December 


301 923 


205^ 998 


96, 


390 


2, 535 


2! 065! 215 


904! 174 


l! 115! 055 


45,' 986 


1938 




















January... 


310. 699 


212, 471 


95', 


725 


2, 503 


2, 002, 857 


906, 478 


1, 051, 697 


44,682 


February 


321. 361 


220 6 1 6 


98. 


177 


2 568 


2, 176. 043 


971 270 


1 1 W 1 08 


45, 665 


March _ 


328", 159 


226! 466 


99, 


071 


2! 622 


2! 213, 161 


998! 799 


1, 167, 558 


46! 804 


April 


335, 508 


233, 766 


99, 


144 


2, 598 


2, 265, 167 


1. 034, 455 


1, 482, 922 


47, 790 


May 


330. 202 


227 837 


99, 


826 


2 539 


9 41 fi 9Q0 


i 037 817 


1 9sn fiin 


47 863 


June - - 


220, 070 


U2, 420 


75, 


716 


1'934 


1, 555, 809 


664, 997 


856, 695 


34! 117 


July 




















August. - --. - 


1 812 


1 790 




22 




5 814 


5 776 


38 




September 


49! 520 


42! 401 


6, 


863 


256 


214! 030 


147! 654 


62, 256 


4, 120 


October 


323, 300 


220, 709 


99, 


851 


2, 740 


1, 988. 090 


889, 736 


1, 054, 547 


43, 807 


November. 


365, 145 


251, 789 


110, 


186 


3, 170 


2, 417, 561 


1, 046, 355 


1, 314. 299 


56, 907 


December..- 


373, 680 


260.240 


110, 


402 


3, 038 


2, 426, 304 


1, 079, 665 


1, 291. 403 


55, 236 


1939 




















January 


373, 518 


261, 980 


108, 


543 


2, 995 


2, 275, 059 


1, 056, 417 


1, 165, 722 


52, 920 


February.. 


383, 081 


268. 948 


111, 


122 


3, 011 


2, 467, 957 


1, 108, 741 


1, 305, 102 


54, 114 


March . 


381, 920 


269, 370 


109, 


690 


2, 860- 


2, 457, 559 


1, 118, 209 


1, 286, 736 


52, 614 


April 


385, 759 


272. 792 


110, 


068 


2, 899 


2, 505, 649 


1. 152, 391 


1, 300. 033 


53, 225 


May 


373, 732 


262, 074 


108, 


924 


2, 734 


2, 505, 404 


1, 134, 487 


1. 318, 990 


51, 927 


June 


281, 116 


186, 308 


92, 


619 


2, 189 


1, 944, 272 


827, 847 


1, 077, 034 


39, 391 


July 


42 


14 




28 




389 


77 


312 




August 


1,323 


1.321 




2 




5. 021 


4, 991 


30 




September . 


70, 129 


61, 282 


8, 


690 


157 


306, 766 


229, 222 


74, 550 


2. 994 



FINAL REPORT, FISCAL YEARS 19 36-19 43 



245 



Table 5. — Number of students employed on the student work program and total 
earnings by month, United States and territories, September 1935 through 
May 1943— Continued 



Month 



Number of students employed 



Earnings 



Total 



1939— Continued 



October... 
November. 
December. 



1940 

January 438,342 

February 457.41 

March ! 474,504 



363, 548 
424, 484 
435. 7y3 



April. 
May. 
June . 



July 

August 

September. 



October ... 
November. 
December. 



483. 627 
478. 392 
314. 539 

456 
1,272 
24, 546 

353, 332 
441, 456 
450, 667 



1941 

January 443.900 

Fehruarv 461.427 

March 473, 277 



April. 
May. 
June.. 



July 

Ausrust 

September. 

October... 
November. 
December. 



1942 

January 

February... 
March 



April.. 
May,. 
June. . . 



July 

August 

September . 



480, 286 
463. 850 
358, 361 

5,370 
338 
34, 216 

274.917 
342. 641 
335, 119 



306, 858 
257. 244 
248, 130 

238,411 
216, 753 
133, 111 

16. 860 



School 
work 
program 



253. 782 
303. 691 
315,615 



319. 745 
333, 890 
348, 625 

356. 555 
349, 248 
212, 647 

454 
1. 272 
19, 177 

248, 152 
316, 831 
327. 492 



324, 006 
337, 042 
347, 719 

353, 511 
337, 431 
257, 960 

5, 083 
338 
29. 492 

195, 207 
245, 629 
241. 212 



218, 693 
17.5. 642 
167, 682 

161, 367 
143.106 
84, 483 



College 
work 
program 



Graduate 

work 
program 



107, 049 
117, 905 
117. 286 



115, 741 
120, 552 
122. 89S 

124. 395 
126. 306 
99, 657 



5,231 

102, 592 
121. 491 
120, 176 



116. 986 

121. 366 

122. 586 

123. 843 
123, 582 

98, 302 



263 



78. 230 
94. 744 
91,765 



86, 364 
79. 765 
78, 704 

75. 462 
72. 146 



8. 943 



2, 717 
2, 888 
2,892 



2, 856 
2, 972 
2, 981 

2, 977 
2. 838 
2, 235 



138 

2, 588 
3, 134 
2. 999 



2, 908 
3.019 
2, 972 

2, 932 
2, 837 
2, 099 



Total 



43 

1, 480 

2, 268 
2, 142 



1,801 
1, 837 
1, 744 

1,582 
1. 501 
942 



2, 401, 160 
2, 965. 275 
2, 974, 549 



2. 863, 345 
3, 126, 122 

3, 279, 780 

3, 385, 794 
3, 442. 300 
2, 321, 283 

2, 180 
3, 979 
107, 586 

2, 246, 687 

3, 078. 617 
3, 107, 852 



2, 767, 868 

3, 159, 141 
3, 279, 327 

3, 347, 841 
3, 378, 566 
2, 582, 455 

25. 787 
1,350 
151,366 

1, 739, 882 

2, 375, 632 
2, 301,493 



1, 847, 930 
1, 684, 151 
1, 681, 192 

1, 647. 759 
% 565. 888 
941, 090 

149, 708 



School 
work 
program 



$1, 094, 244 
1, 379, 054 
1, 420, 097 



1, 414, 355 
1. 509, 814 
1, 603, 987 

1, 671, 588 
1,669, 502 
1, 008, 933 

2, 153 
3, 979 
61, 288 

1, 013, 514 
1, 414. 391 
1, 475, 603 



1, 354, 262 
1,501. 159 
1, 577, 705 

1, 640, 561 
1. 609. 179 
1, 293, 262 

22, 031 
1, 350 
107, 494 

805, 899 
1, 082, 856 
1, 061, 366 



850, 841 
670. 530 
654, 702 

648. 193 
596, 865 
366, 308 

31, 760 



College 
work 
program 



$1, 256, 291 
1, 524, 691 
1, 493, 415 



1, 389, 822 
1. 554, 099 
1, 611, 735 

1, 649, 305 
1, 708. 471 
1, 263, 813 



44, 064 

1, 189, 616 
1, 603, 891 
1, 573. 363 



1. 359. 248 
1, 598, 766 
1, 642, 964 

1, 648, 544 
1,711,814 
1, 248, 760 



Graduate 

work 
program 



272 



43, 299 

908. 541 
1, 247, 297 
1, 193, 920 



983, 2C3 
979, 328 
993, 380 

968, 866 
939. 467 
559, 069 

117, 948 



$50, 625 
61, 530 
61.037 



59. 168 
62, 209 
64, 058 

64, 901 
64, 327 
48, 537 



2, 234 

43, 557 
60, 335 
58, 886 



54, 358 
59. 216 
58, 658 

58, 736 
57, 573 
40, 433 



484 



573 

25.442 

45. 479 

46, 207 



33, 886 

34. 293 
33, 100 

30. 700 
29, 556 
15,713 



October... 
November. 
December. 



1943 

January 

February... 
March 



April. 
May. 
June 1 



1, 830 

52, 262 
81.050 
86. 787 



91, 698 
94, 827 
97, 828 

97, 117 
88, 509 



883 

24, 212 
45. 144 
51,417 



58. 41.5 
60, 700 
63, 041 

63. 979 
57, 743 



947 

28, 050 
35. 906 
35. 370 



33. 283 

34, 127 
34, 787 

33, 138 
30, 766 



10,916 

424. 550 
705, 249 
726, 734 



OiU, V.;3 
775, 204 
797, 151 

816, 707 
758, 267 



96, 408 
202, 740 
232, 538 



256. 748 
286, 625 
301, 479 

316, 212 
292. 009 



7, 579 

328, 142 
502, 509 
494, 196 



408, 145 
488, 579 
495, 672 

500, 495 
466, 258 



' June 1943 data not available. 



246 



NATIONAL YOUTH ADMINISTRATION 



Table 6. — Number of schools and college and graduate institutions participating 
in the NY A student work program, by States, academic year 1939-40 



State or Territory 



Grand total 

Alabama.. 

Arizona 

Arkansas 

California. 

Colorado 

Connecticut.-- 

Delaware 

District of Columbia 

Florida 

Georgia 

Idaho 

Illinois 

Indiana. 

Iowa 

Kansas 

Kentucky 

Louisiana 

Maine 

Maryland . 

Massachusetts, „ 

Michigan 

Minnesota 

Mississippi 

Missouri 

Montana.- 

Nebraska 

Nevada 

New Hampshire.- 

New Jersey. 

New Mexico 

New York City ... 

New York (excluding New York City) 

North Carolina 

North Dakota 

Ohio 

Oklahoma 

Oregon 

Pennsylvania 

Rhode Island 

South Carolina - 

South Dakota 

Tennessee 

Texas 

Utah 

Vermont 

Virginia 

Washington 

West Virginia 

Wisconsin 

Wyoming 

Alaska.. 

Hawaii 

Puerto Rico 



Total 



29, 999 



1,326 
86 
668 
576 
371 

143 
50 
46 
676 
875 

191 
1,091 
781 
963 
758 

791 
810 
234 
210 
422 

850 
561 
768 
935 
207 

594 
38 
107 
305 
241 

254 
905 

1,393 
473 

1,277 



290 



918 

393 
646 
663 
115 
108 

942 
347 
404 
652 
92 

1 

32 
46 



Schools 



I, 301 



81 
644 
487 
354 

119 
48 
34 
661 
825 

182 
1,013 
741 
899 
712 

759 
787 
218 
182 
370 

807 
524 
730 
875 
196 

571 
37 
99 
272 
234 

200 
850 

1,338 
460 

1, 209 



221 

63 



2, 579 
104 
95 

901 

323 
383 
570 
91 



( l ) 



i Data not available. 



FINAL REPORT, FISCAL YEARS 19 36-1943 247 



Table 7. — Average number of students employed per month 1 on the NY A student 
work program, by States, academic year 1939-40 



State or Territory 


Total 


School work 


College work 


Graduate 
work 




program 


program 


program 


Grand total. 


438, 015 



317, 346 


117, 834 


2, 835 


\labama 


10, 069 


8, 141 


1 924 


4 


Arizona. ..... . ... .. .. 


1, 945 


1, 371 


'564 


10 


Arkansas ..... ... . . 


6, 485 


5, 335 


1, 149 


1 


California. . ... 


20, 085 


11,086 


8, 600 


399 


Colorado. . . -- . ... . 


5,176 


3, 820 


1, 329 


27 


Connecticut 


2, 987 


2, 190 


676 


121 


Delaware . — ..... ... 


'507 


'377 


130 
892 




District of Columbia. .. ___ .. ... 


1,662 


667 


103 


Florida . . . - ... .. . ... 


5,282 


4,113 


1, 162 


7 


Georgia. . . . ... 


11,678 


8, 839 


2, 750 


89 


Idaho 


2, 400 


1, 647 


745 


g 




24^ 654 


18, 131 


6, 271 


252 


Indiana.. ... . . . ... .. 


11, 220 


7, 825 


3, 345 


50 


Iowa. ..... .. 


7, 690 


4, 689 


2, 926 


75 


Kansas. . . 


9, 466 


6,812 


2,633 


21 


Kentucky . ._ 


9, 162 


7, 329 


1, 833 




Louisiana.. ... .... . ... 


7, 496 


5, 035 


2, 440 


21 


Maine .. 


1,986 


1, 397 


589 




Maryland- . _ . . 


3,540 


2, 318 


1, 187 


35 


Massachusetts... . .. 


11, 591 


8, 519 


2,934 


138 


Michi a an 


16, 006 


11 299 


4, 511 


196 


Minnesota . . . 


9, 891 


6', 992 


2' 874 


25 


Mississippi. . . 


7, 460 


5, 458 


2, 000 


2 


Missouri.. . . . .. . 


12, 535 


9, 222 


3, 282 


31 


Montana.. 


2,981 


2, 263 


718 






5 867 


4 254 


1 601 


12 


Nevada... 


'301 


'213 


88 




New Hampshire - ... 


1, 120 


592 


522 


6 


New Jersey ..- 


10, 152 


8, 305 


1, 836 


11 


New Mexico-.. 


1,880 


1, 425 


449 


6 


New York City 


23, 805 


16 490 


6 931 


384 


New York (excluding New York City) 


17! 152 


12! 695 


i 360 


97 


North Carolina . ...... 


10, 287 


7, 065 


3, 190 


32 


North Dakota 


4, 815 


3, 790 


1, 023 


2 


Ohio. 


21, 388 


15, 712 


5, 586 


90 


Oklahoma 


13, 190 


10 184 


2 969 


37 


Oregon. . .... ... . 


3! 474 


2, 101 


1, 361 


12 


Pennsylvania,. ... _ .. ... .. ... .. . . 


32, 159 


25, 231 


6, 728 


200 


Rhode Island 


1, 860 


1, 294 


554 


12 


South Carolina ... 


7, 466 


5, 782 


1, 683 


1 




6 208 


5 438 


770 




Tennessee ... ......... ... 


10! 405 


8, 244 


2, 111 


50 


Texas 


21, 151 


14, 900 


6,211 


40 


Utah 


3,748 


2, 159 


1, 578 


11 


Vermont-. - . . 


1,186 


730 


454 


2 


Virginia. . ... ... .. . ... 


7, 593 


5,119 


2, 445 


29 


Washington ........ . ... 


6, 379 


4, 307 


2,019 


53 




7, 409 


6, 043 


1,343 


23 


Wisconsin . ' . 


12, 598 


8, 786 


3, 713 


99 


Wyoming— _. .. ... 


793 


565 


225 


3 


Alaska. 


49 


32 


17 




Hawaii .. .. . ...... 


821 


607 


206 


8 


Puerto Rico .-. - - . 


805 


408 


397 









1 The student work program operate! on a school-year basis; average number of students employed per 
month were based upon a 9-month academic year. 



248 



NATIONAL YOUTH ADMINISTRATION 



Table 8. — Average number of students employed per month 1 on the NY A student 
work program, by States, academic year 1940-41 



State or Territory 


Total 


School w r ork 
program 


College work 
program 


Graduate 

work 
program 


Grand total 


439, 149 


318, 953 


117, 349 


2, 847 


Alabama. ._. - ... . . __j .... 


10, 783 


8, 844 




1,935 


4 


Arizona 


1, 941 


1, 344 


590 


7 


Arkansas... . _ 


6, 638 


5, 534 


1, 104 




California.-- ... 


20, 808 


11, 577 


8, 800 


431 


Colorado. . - . ... . . .. ... . 


4, 790 


3, 428 


1,348 


14 


Connecticut-.. . .. ... ... .. .. 


3, 001 


2, 138 


732 


131 


Delaware 


563 


435 


128 




District of Columbia. .. . 


1,597 


707 


805 


85 


Florida 


4, 971 


3, 801 


1,169 


1 


Georgia. -. . ... 


12, 059 


9, 321 


2,637 


101 


Idaho-- -_ _.- ._. . 


2, 397 


1, 642 


748 


7 


Illinois 


25, 466 


18, 999 


6, 211 


256 


Indiana.. - . . - ... . 


11, 582 


8, 222 


3. 291 


69 


Iowa_ .-- . .- 


8, 050 


5, 134 


2, 837 


79 


Kansas,. .. . . .. . .. __. . 


9,078 


6, 284 


2, 773 


21 


Kentucky 


8.818 


7, 024 


1,794 




Louisiana 


8. 495 


5, 783 


2, 669 


43 


Maine--- - . - . . .. 


2, 148 


1,569 


579 




Maryland... ......... .- - . . - 


3, 982 


2,782 


1, 170 


30 


Massachusetts . ... ------- - . 


11, 508 


8, 386 


2,940 


182 


Michigan- .... 


15, 823 


11, 157 


4, 500 


166 


Minnesota 


9, 851 


6, 919 


2, 903 


29 


Mississippi... ... ... - - 


7, 725 


5, 690 


2, 030 


5 


Missouri. . - . r 


12, 924 


9, 502 


3, 381 


41 


Montana... 


2,918 


2, 106 


811 


1 


Nebraska.. _-. . . .. 


6, 184 


4, 493 


1,684 


7 


Nevada 


300 


204 


96 




New Hampshire - _ 


1,280 


724 


546 


10 


New 7 Jersey. - . - ..- . - 


9, 707 


7, 940 


1, 759 


8 


New Mexico - 


1, 969 


1,438 


525 


6 


New York City 


25, 017 


18, 077 


6, 636 


304 


New York (excluding New York City) 


15. 751 


11, 639 


4, 027 


85 


North Carolina. . 


ll! 038 


7,771 


3, 197 


70 


North Dakota . ...... 


4, 351 


3, 390 


957 


4 


Ohio 


20, 554 


15, 066 


5, 396 


92 




13, 353 


10, 232 


3, 121 




Oregon 

Pennsylvania .. .. . 


3, 686 


2, 412 


1, 262 


12 


29^ 694 


23, 236 


6, 298 


160 


Rhode Island .. ... 


1, 798 


1, 234 


559 


5 


South Carolina . . ... 


7,282 


5, 564 


1,696 


22 


South Dakota . 


5, 458 


4, 703 


755 




Tennessee 


10, 681 


8, 455 


2, 153 


73 


Texas ----- - . -- 


21. 307 


14, 951 


6,311 


45 


Utah 


3. 502 


2,028 


1,452 


22 


Vermont .. . . _. ....... .. 


1, 186 


732 


453 


1 


Virginia.-- . 1__ ......L.. 


8, 731 


6,161 


2, 523 


47 


Washington , . ........ 


6, 147 


4, 119 


1, 978 


50 


West Virginia.-. - .. _•_ . 


6, 926 


5, 536 


1,368 


22 


Wisconsin . ... .... 


12. 450 


8. 555 


3, 809 


86 


Wyoming. . ... 


793 


560 


230 


3 


Alaska .-. 


65 


45 


20 




Hawaii . .... . ... . . . 


803 


582 


211 


10 


Puerto Rico. - . . ...... 


1, 159 


717 


442 




Virgin Islands... ... 


61 


61 













1 The student work program operates on a school-year basis; average number of students employed 
per month were based upon a 9-month academic year. 



FINAL REPORT, FISCAL YEARS 1936-1943 249 



Table 9. — Average number of students employed per month 1 on the NY A student 
work program, by States, academic year 1941-42 



State or Territory 


Total 


School work 
program 


College work 


\JL (V 1 1 1 <\ 1 \j 

work 
program 


Grand total 


265 901 


185 326 


78 868 




1 707 


Alabama _ _ _ . . . _ 


6, 038 


4, 647 


1,390 


1 


Arizona. . - . ... 


1,008 


654 


351 


3 


Arkansas 


4 176 


3 372 


804 




California 


12 925 


7' 606 


5 164 


155 


C olovado 


3' 224 


2 222 


' 997 


5 


Connecticut . ... . . 


2, 151 


1,469 


576 


106 


Delaware ... 


354 


272 
496 


82 




District of Columbia _ - 


1, 090 


536 


58 


Florida 


3, 191 


2 388 


802 


I 


Georgia.. . . _ — _ . — .. 


7, 568 


5, 732 


1, 760 


76 


Idaho. - 


1,412 


957 


452 


3 


Illinois- . . - - . ----- - . 


14, 326 


9, 884 


4, 283 


159 


Indiana 


6, 858 


4, 709 


2, 119 


30 




5* 106 


3' 179 


I 89Q 


37 


Kansas 


5', 061 


3' 293 


l] 763 


5 


K.entucKy_. _ ._ .. . 


0, 875 


4, DoO 


1, 245 




Louisiana. . ------ - - ... 


5, 296 


3, 523 


1, 756 


17 


AT aine 


1 714 


1 213 


501 




Maryland-. ....... . ._. 


2, 365 


1, 551 


797 


17 


IVTassachusctts 


7, 206 


4 617 


2 365 


224 


n r • u • 


9, 652 


O, 508 


ncn 

O, Obii 


82 


Minnesota. . ... :. . 


6, 446 


4, 460 


1,966 


20 


A/T l cqi Tini 


4 946 


3 594 


1 346 


g 


J^Iissouri 


7' 195 


5* 013 


2, 142 


40 


Montana. 


1 685 


l' 198 


' 487 




Nebraska 


3, 300 


2,263 


1, 034 


3 


Nevada. .: : . 


218 


156 


62 




New Hampshire 


X 000 


623 


372 


5 


New Jersey 


6* 098 


5, 047 


1, 047 


4 


New I^Iexico 


1 250 


' 958 


' 292 




New York City -.. .............. 


14, 524 


9, 933 


4, 427 


164 


New York (excluding New York City) 


9, 779 


6, 878 


2,834 


67 


North Carolina .. .._ 


7, 962 


5, 449 


2, 460 


53 


North Dakota 


2, 426 


1 851 


575 




Ohio 


12, 529 


8' 874 


3 610 


45 


Oklahoma . . .... ... . . 


6, 180 


4, 299 


1,874 


7 


Oregon. . ... . 


2, 355 


1,405 


942 


8 




17 193 


12 767 


4 342 


84 


Rhode Island 


1 119 


732 


' 385 


2 


South Carolina 


4' 807 


3, 446 


1 336 


25 


South Dakota-.- ... ........ 


2, 856 


2,380 


476 




Tennessee. ... 


6, 834 


5,242 


1, 547 


45 




12, 992 


8, 559 


4, 409 


24 


Utah 


2 126 


1 188 


932 






787 


473 


312 


2 


Virginia.. ... . .. _ 


5, 628 


3,912 


1, 693 


23 


Washington.. . 


3, 608 


2, 328 


1,256 


24 


West Virginia 


4, 071 


3, 187 


874 


10 


Wisconsin . ..... .. ... 


7, 468 


4,885 


2, 533 


50 


Wyoming. . . 


557 


413 


143 


1 


Alaska . . . .... ... . .. ... 


33 


22 


11 




Hawaii 


497 


360 


127 


10 


Puerto Rico . .. 


815 


488 


327 




Virgin Islands. ... . .... . 


21 


21 











1 The student work program operated on a school-year basis; average number of students employed per 
month were based upon 9-month academic year. 



250 



NATIONAL YOUTH ADMINISTRATION 



Table 10. — Average number of students employed per month 1 on the NY A student 
work program, by States, academic year 1942—43 2 



State or Territory 



Grand total — 

Alabama 

Arizona 

Arkansas 

California 

■Colorado.. 

Connecticut... 

Delaware. 

District of Columbia 

Florida 

Georgia.. 

Idaho 

Illinois 

Indiana 

Iowa — 

Kansas 

Kentucky.. 

Louisiana. 

Maine 

Maryland 

Massachusetts 

Michigan. 

Minnesota. 

Mississippi. 

Missouri... 

Montana — 

Nebraska 

iNevada 

New Hampshire 

New Jersey... 

New Mexico 

New York... 

North Carolina 

North Dakota. 

Ohio 

Oklahoma. 

Oregon 

Pennsylvania. 

Pvhode Island... 

South Carolina. 

South Dakota.. 

Tennessee 

Texas.. 

"Utah 

Vermont 

Virginia 

Washington 

West Virginia. 

Wisconsin 

Wyoming 



Total 



88, 596 



3, 658 
281 

1, 700 

2, 670 
1, 143 

439 
103 
292 
1, 565 
3,718 

344 

4, 695 
1, 813 
1,807 

1, 592 

2,437 
2,756 
402 
478 
1,508 

2, 804 
2, 160 
2,617 
2, 613 

514 

1, 147 
31 
258 
975 
430 

« 7, 049 

2, 305 
843 

3, 406 

2,485 
490 

4,535 
232 

2, 617 

1. 147 

3, 054 
6, 308 

527 



1,877 
574 

1, 461 

2, 384 
184 



School 'work 
program 



54, 181 



2,942 
119 
1, 361 
1, 087 
695 

138 
50 
79 

1, 052 

2, 921 

238 
2,539 
990 
841 



1, 860 
1, 785 
209 
187 
559 

1,485 
1, 372 
1, 955 
1, 576 
339 

761 
13 
101 



i 4, 054 
1, 127 
614 
1, 934 

1, 657 
184 

2, 431 

72 
1,798 

923 
2, 277 
3,812 
267 
116 

I, 077 
244 
1,095 
1,327 
122 



1 The student work program operated on a school-year basis; average number of students employed per 
month were based upon 9-month academic year. 

2 June 1943 data not available; averages based on previous months. 

3 Data not reported separately for the col 'ego work program and tbe graduate work program in academic 
year 1942-43. 

* Includes New York City. 



FINAL REPORT, FISCAL YEARS 19 36-1943 251 



Table 11. — Average monthly earnings of students employed on the NY A student 
work program, by States, academic years 1939-40 and 1940-41 





Academic year 1939-40 


Academic year 1940-41 


State or Territory 


School 


College 


Graduate 


School 


College 


Graduate 




work 


work 


work 


work 


work 


work 




program 


program 


program 


program 


program 


program 




$4. 55 


$12. 75 


$21. 14 


$4. 51 


$12. 90 


$19. 28 


Alabama 


4. 23 


12. 85 


27. 06 


4. 06 


13. 26 


30. 00 


Arizona. 


4. 84 


13. 58 


22. 13 


4. 89 


13.51 


20.20 


Arkansas 


3.98 


11 81 


11. 25 


3. 96 


11. 85 




California 


4. 84 


13. 16 


22. 66 


5! 00 


13! 58 


20.51 


Colorado 


4. 68 


13.04 


20. 59 


4.59 


13. 44 


20. 37 


Connecticut 


5. 44 


11.68 


22.11 


5.28 


12.28 


19. 57 


Delaware ... 


5. 19 


11. 68 




4. 97 


11.99 




District of Columbia ^ 


5. 54 


14 04 


22. 06 


5. 28 


14. 67 


23 28 


Florida ... 


4.32 


13. 38 


25. 34 


4! 43 


13! 73 


25! 45 


Georgia 


3. 97 


11.92 


20. 52 


4. 04 


12. 14 


18. 19 


Idaho_ 


4. 70 


11. 96 


24. 89 


4. 37 


12.58 


24. 53 


Illinois 


4. 62 


13. 36 


18. 53 


4. 59 


13.71 


16. 60 


Indiana 


4. 77 


11.97 


20. 11 


4. 55 


12. 27 


17.00 


Iowa . . 


4. 45 


12. 44 


21. 53 


4.25 


12.41 


20. 40 




3. 93 


11.78 


19.81 


3. 93 


12 17 


18. 47 


Kentucky 


4. 30 


12.23 




4. 38 


12. 16 






4.83 


12. 11 


28. 93 


4. 66 


12. 22 


22. 89 


Maine, 


5 21 


12. 95 




5 35 


13 80 




Maryland . 


5. 33 


12. 77 


21.65 


5^ 22 


li 73 


22. 18 


Massachusetts 


5. 35 


12.87 


22. 18 


5. 17 


12. 52 


16.40 


Michigan 


4. 83 


12. 85 


19. 57 


4.70 


13. 04 


19. 06 


Minnesota . . 


4. 04 


12. 99 


19.25 


4. 04 


13. 21 


19. 90 




3. 99 


9.84 


22. 95 


3. 94 


11.30 


25. 18 


Missouri 


4.32 


12. 50 


19. 54 


4. 14 


12. 38 


19. 22 


Montana 


4. 65 


11. 73 




4. 65 


11.74 


19. 25 


Nebraska, . 


4.20 


12.22 


17. 96 


4. 17 


12. 66 


21.00 


Nevada,.. 


5. 61 


14. 35 




5. 37 


13. 97 




New Hampshire 


4. 89 


11.58 


20. 40 


4. 94 


12. 19 


21.46 


New Jersey 


5. 46 


12. 40 


19 79 


5. 36 


12 08 


18. 40 




3.25 


ll! 97 


18! 28 


4. 59 


12 - . 54 


17! 04 


New York City . 


4. 75 


13.88 


21.46 


4.71 


13. 43 


19. 41 


New York (excluding New 














York City).. 


4. 94 


12. 82 


18. 52 


4.81 


12. 98 


18. 67 


North Carolina 


5. 03 


12. 96 


21. 45 


5. 00 


13. 05 


19 51 


North Dakota 


i 49 


1L 39 


27! 41 


4! 22 


ll! 12 


14! 58 


Ohio... 


4.81 


13. 50 


23. 52 


4. 68 


13.49 


20. 43 


Oklahoma.. 


3.74 


12.69 


19. 83 


3. 93 


12. 64 


Oregon.. _ 


4.44 


12. 29 


19. 84 


4. 48 


12. 54 


18. 25 


Pennsylvania. 


4. 42 


13. 47 


21. 87 


4. 56 


13. 99 


21. 25 


Rhode Island. 


5! 72 


12^44 


22! 34 


5. 50 


12'. 46 


19. 96 


South Carolina 


3.80 


12.28 


23. 33 


4.13 


12. 84 


14.25 


South Dakota 


4.23 


12. 86 




4.24 


12. 59 




Tennessee 


4.23 


12. 62 


19.81 


4. 06 


12. 62 


21.21 


Texas.. .. 


4. 88 


13. 18 


22. 42 


4.66 


13. 14 


20. 24 


Utah 


4.49 


11. 71 


19.74 


3. 92 


11.69 


13. 72 


Vermont 


4. 80 


11.54 


24. 83 


4. 74 


11. 17 


17. 80 


Virginia 


5. 05 


12. 56 


20.81 


4. 94 


12.64 


17.71 


Washington . 


4.24 


13.51 


20.71 


4. 41 


13. 75 


19. 26 


West Virginia. 


4.12 


11.60 


23. 88 


4.27 


11.62 


22.24 


Wisconsin. 


4 20 


12. 03 


19. 75 


4. 00 


12.02 


16. 53 


Wyoming. 


4. 82 


. 12. 92 


19. 52 


4. 65 


14. 12 


21. 85 


Alaska 


5. 32 


15. 79 




5. 36 


14. 71 




Hawaii 


4. 55 


12. 44 


16.98 


4. 61 


12. 63 


" 20.09 


Puerto Rico. 


3.94 


12. 37 




4.23 


11.07 




Virgin Islands 




3.99 

















252 



NATIONAL YOUTH ADMINISTRATION 



Table 12. — Average monthly earnings of students employed on the NY A student 
work program, by States, academic years 1941-40 and 1942-43 





Acad 


emic year 1941-42 


Academic year 1942-43 1 


oldie ul leilliuiv 


School 


Colles 


e 


Graduate 


School 


College and 




work 
program 


work 
program 


work 
program 


work 
program 


graduate 
work pro- 
gram 2 


Grand total 


$4. 12 


$12. 


40 


$19. 23 


$4. 66 


_ 

$13. 84 






Alabama - - .. 


3.72 


13. 


00 


30. 00 


4 74 




Arizona . . .. . .. . . i. - 


4. 56 


13. 


00 


15. 55 


4 97 


15 32 


Arkansas 


3. 65 


11. 


47 




4 33 


12 94 


California 


4. 63 


13! 


43 


23.82 


5^ 04 


15! 03 


Colorado 


3. 98 


12. 


02 


15.78 


4. 64 


13. 50 


Connecticut. - -. - i.i 


4. 99 


12. 


38 


19 37 


4 90 


li. HI 


Delaware.- . _ . 


4. 21 


12. 


95 




5. 30 


17. 36 




5 02 


13. 


43 


22 94 


5 67 


16 12 


Florida 


3. 92 






14^00 


4i 55 


1L 93 




3 64 


11. 


96 


13. 05 


4.01 


13.02 


Idaho 


4.17 


n. 


OD 


20. 1 1 


4. 84 


14 20 


Illinois. .. . ... _ ... . 


4. 11 


12. 


82 


16 (54 


4 71 


14 37 


Indiana ... 


4. 02 


11. 


76 


14 64 


4 86 


13 61 


Iowa 


3. 59 


11. 


91 


18. 79 


4. 41 


13. 82 


Kansas 


3. 64 


11. 


56 


18. 02 


4. 39 


13.56 




3 84 


11 


65 




4. o5 


13. 36 


Louisiana. ... ... ... . 


A. 01 


11. 


70 


21. 68 


4. 80 


12. 57 


Maine 


4. 72 


12 


39 




5 05 


12. 67 




4 79 


12 


19 


22. 54 


5. 23 


U. 62 


Massachusetts 


4. 97 


12. 


64 


24. 52 


4.87 


14.65 


at; Viirro-n 


4 27 


12 


87 


19 10 


4. 85 


13 86 


Minnesota . .... 


3^ 55 


12 


60 


17 02 


4 35 


14 50 




Q CO 

0. 05 


10 


20 


25. 47 


4. 57 


11. 32 


Missouri 


3. 93 


11 


96 


13. 65 


4. 32 


13. 26 


Montana 


3! 99 


11 


71 




4. 91 


14. 43 


Nebraska. ... 


3.64 


12 


50 


25. 11 


4. 67 


13. 54 


Nevada. . .. ... ...... 


5.24 


15 


19 




4. 95 


18. 77 


New Hampshire 


4'. 77 


12 


10 


17. 46 


4 58 


11 98 


New Jersey 


4. 62 


11 


31 


21." 77 


4^88 


13^ 19 


New Mexico 


4. 31 


12 


98 




4. 97 


13.61 


New York City.. _-. 


4. 34 


12 


63 


18 29 


New York (excluding New York City). .. 


4. 16 


12 


24 


17 28 


3 4 85 


3 14 gi 


N orth Carolina — ... ... 


4 38 


11 


74 


17 71 


4 89 


12 68 


North Dakota 


3. 71 


11 


51 




4' 89 


12. 98 


Ohio 


4. 25 


13 


10 


18.90 


4.71 


14. 65 


Oklahoma ... . ...... 


3. 69 


12 


00 


18. 80 


4. 47 


14. 11 


Oregon. ... ...... 


4. 41 


12 


55 


16 24 


4 97 


14. 39 


Pennsylvania 


4. 28 


12 


98 


17 67 


4 94 


15. 12 


Rhode Island 


5! 26 


11 


54 


14." 35 


5^ 04 


13! 55 


South Carolina 


3. 75 


li. 


79 


10.94 


4. 32 


12. 23 


South Dakota.. ... . ... ... . 


3.82 


12 


44 




4. 75 


13. 64 


Tennessee. .... ... ... . . ... 


3.55 


12 


13 


18. 13 


4. 55 


13. 33 


Texas _. .-. .... .... 


4. 38 


12 


84 


19. 46 


4. 87 


12. 97 


l tan ._ 


3. 71 


12. 


02 


17.23 


4. 75 


14.41 




3. 94 


10 


46 


10.09 


4.61 


12. 19 


Virginia .. 


4.52 


12 


75 


22. 07 


4.91 


13.28 


Washington ... . . .... 


4.41 


13 


10 


18.86 


5. 18 


16. 01 


West Virginia.. ...... 


4.15 


12. 


03 


23. 64 


4.78 


12. 72 


Wisconsin.. . . 


3.69 


11 


62 


15.44 


4. 38 


13. 83 


Wyoming .. . . _ 


4.63 


14 


05 


13.43 


4. £7 


14. 33 


Alaska .. . ... .. 


6. 46 


20 


12 








Hawaii.. .. . ... ... 


4.85 


13 


88 


18.64 






Puerto Rico.. . .. ... .. . 


3.67 


11. 


10 






Virgin Islands. ... _. .. 


3. 95 



















1 June 1943 data not available; average based on previous months. 

2 Data not reported separately for the college work program and the graduate work program in academic 
year 1942-43. 

3 Includes New York City. 



FINAL REPORT, FISCAL YEARS 19 36-1943 



253 



Table 13. — Number of y out h 1 employed on the NY A out-of-scbool work program, 
by month, United States and Territories, January 1936 through May 1943 



Month 



Total 



1936 

January 

February... 

March 

April 

May 

June 

July 

August 

September. . 

October 

November. . 
December.. 
1937 

January 

February... 

March 

April 

May 

June 

July 

August 

September.. 

October 

November.. 
December. . 
1938 

January 

February... 

March 

April 

May 

June 

July 

Ausrust 

September. _ 
October 



16, 
78, 
163. 
181, 
177, 
184, 
164, 
161, 
166. 
165, 
171, 
177, 

183, 
187, 
189, 
189, 
182, 
170, 
148, 
131, 
126, 
122, 
126, 
136, 



Regular program 



Male Female 



14.5,951 
152, 105 
154, 833 
158, 890 
179, 406 
209, 460 
214, 983 
218, 853 
220, 704 
220. 295 



10,179 
47, 676 
97, 872 

105, 743 
99, 935 

100, 989 
88, 600 
85, 385 
87. 773 
85, 385 
87, 416 
90, 872 

94, 748 

96. 931 

97, 659 
96, 305 
89, 041 
81, 853 
70, 203 
62, 087 
59, 054 
56, 819 
58, 972 
65, 870 

73, 308 
78, 242 
81,136 
85, 301 
99, 857 
120, 512 
123, 065 
124, 545 
124, 953 
123,375 



6, 572 
31,079 
65, 619 
75, 536 

77, 911 

83, 267 
76, 192 
76, 186 
78, 891 
80, 345 

84, 524 
86, 431 

88, 900 

90, 808 
92, 131 

93. 561 
93, 103 
88, 645 

78, 351 
69, 644 
67, 137 
65, 588 
67, 981 
70, 156 

72, 643 

73. 863 
73; 697 
73, 589 

79, 549 
88, 948 

91, 918 

94. 308 

95. 751 

96. 920 



Month 



November. . 
December. . 

1939 

January 

i February. .. 

March 

April 

May 

June 



July 

August 

September. . 

October 

November. _ 
December. _ 

1940 

January 

February... 

March 

April 

May 

June 



July 

August 

September. _ 

October 

November. . 
December. . 

1941 

January 

February. .. 

March 

1 April 

I May 

1 June 



Total 



230, 478 
239, 628 

237, 468 
242, 454 
235, 519 

228, 268 
224, 889 
213, 694 

199, 311 
201,837 
215, 301 
228, 193 
251,288 
285, 659 

311,918 
325, 495 
325, 560 
312, 142 
289, 945 
264, 171 

187, 605 

229, 914 
230,013 
223, 877 
253, 260 
316, 444 

407, 686 
470, 523 
445, 941 
405, 786 
378, 351 
369, 263 



Regular program 



Male Female 



130, 087 
136, 534 

135, 453 
139, 253 

134, 583 
129, 997 

128, 781 
121,923 

113, 636 

114, 712 
122. 824 
127, 364 
139, 589 
161, 658 

177, 667 
184, 830 
183, 519 
175, 362 
161, 075 
146, 764 

105, 047 
132, 518 

135, 635 

129, 848 
146, 771 
182, 439 

236, 841 
268, 423 
246, 675 
217. 065 
197, 769 
195, 960 



100, 400 
103, 094 

102,015 
103, 201 
100, 936 
98, 271 
96, 108 

91, 771 

85, 675 
87, 125 

92. 477 
100, 829 
111,699 
124, 001 

134, 251 
140, 665 
142,041 
136,780 
128, 870 
117, 407 

82, 558 
97, 396 
94. 378 
94, 029 
106, 489 
134, 005 

170. 845 
202, 100 
199, 266 
188, 721 
180, 582 
173, 303 



Month 



Total 



Regular program 



Defense and war production 
training program 2 



Total 



Male 



Female 



Total 



Male Female 



July 

August 

September . 

October 

November. 
December.. 



1941 



January.. 
February. 

March 

April 

May 

June 



1942 



July 

August 

September- 
October 

November. 
December.. 



299, 069 
293, 822 
287, 522 
269,816 
286, 870 
268, 910 

219, 545 
217. 927 
206. 903 
191, 253 
186, 889 
167, 472 

89, 279 
107. 594 
88. 464 
73, 205 
73, 393 



250, 798 
218. 771 
195, 120 
178, 772 
192, 148 
182, 141 

139, 942 
131, 877 
120, 149 
101. 040 
75, 187 
65. 729 



127, 688 
104. 251 
84. 290 
66, 167 
67, 494 
. 62, 802 

49, 214 
46, 619 
41,647 
35, 217 
24, 966 
20, 464 



123, 110 
114, 520 
110, 830 
112, 605 
124, 654 
119, 339 

90, 728 
85, 258 
78, 502 
65, 823 
50. 221 
45, 265 



48, 271 
75. 051 
92, 402 
91, 044 
94, 722 
86, 769 

79, 603 
86, 050 
86. 754 

90, 213 

91. 702 
101, 743 

89, 279 
107, 594 
88. 464 
73. 205 
73. 393 
69, 692 



39, 204 
61. 091 
74. 419 
73, 442 
76. 865 
70, 577 

65. 440 
71, 173 
69, 740 
69.413 
66,812 
72, 336 

57. 194 
67. 573 
54, 613 
42. 405 
39. 961 
38. 356 



January... 
February _ 

March 

April 

May 

June 3 



1943 





13. 960 
17. 9S3 
17, 602 
17, 857 
16, 192 

14, 163 

14. 877 
17! 014 
20, 800 
24. 890 

29, 407 

32. 085 
40, 021 

33, 851 

30, 800 

33, 432 

31, 336 

29. 997 

34, 443 
33. 681 
33, 125 
33. 359 



1 Includes youth and nonyouth employees for fiscal years 1936 through 1939; data not reported separately 
for these years. 

2 During the fiscal year 1942 the training program was called "Youth Work Defense Program." During 
the fiscal year 1943 the program was called "War Pioduction Training Program." No separate training pro- 
gram was operated during- fiscal year 1941 or prior years. 

3 June 1943 data not available. 



254 



NATIONAL YOUTH ADMINISTRATION 



Table. 14. — Average number of youth employed per month 1 on the NY A out-of- 
school work program, by States, fiscal years 1940 through 1943 



State or Territory 


Regular program 


Fiscal year 1942 


War 
production 
training 
program 1 
fiscal year 
1943 


Fiscal 
T94O 


Fiscal 
year 
1941 


Total 


Regular 
program 


You. tli work 


Grand total 


264, 460 


326, 602 


239, 666 


154, 306 


85, 360 


78, 587 


Alabama . 


6, 614 


8, 377 


6, 940 


5, 355 


1 585 


1, 664 


Arizona . . ... 


]' 090 


l' 244 


* ' 872 


' 703 


169 


252 


Arkansas 


5^ 441 


6*, 470 


5. 374 


3, 264 


2 110 


1,952 


California 


10! 645 


12, 909 


6, 766 


4! 418 


2, 348 


1, 129 


Colorado 


2,334 


2. 796 


2, 192 


1. 695 


497 


387 


Connecticut .'. - 


2. 707 


2 949 


2 039 


943 


1 098 


772 


Delaware 


' 496 


' 778 


' 471 


379 


92 


48 


District of Columbia _ - 


1, 091 


1 329 


885 


669 


216 


382 


Florida 


3,' 966 


4' 631 


4, 086 


2, 891 


1, 195 


1, 364 


Georgia 


6, 285 


8, 847 


8,016 


5, 994 


2, 022 


2, 625 


Idaho 


i, 347 


1, 202 


1, 172 


581 


591 


549 


Illinois. 


14^ 610 


18' 794 


13' 279 


5, 917 


7, 362 


5, 611 


Indiana 


6^ 105 


8' 447 


5^ 948 


3] 105 


2' 843 


2, 171 


Iowa 


4,' 803 


7, 309 


4' 907 


3! 157 


l!750 


1, 387 


Kansas 


4. 763 


4,816 


3, 913 


2, 567 


1, 346 


1, 126 


Kentucky 






cr\a 
O, OUD 


O Oil! 
O, OlO 


_ „ 
2, 79U 


3, 168 


Louisiana . . - 


5, 344 


5, 407 


5, 162 


3, 755 


1, 407 


1, 533 


Maine 


1 802 


2' 456 


2, 107 


' 833 


1 274 


1, 147 




3^ 437 


£ 090 


2, 230 


1, 388 


'842 


858 


Massachusetts 


7, 546 


10, 469 


7, 032 


4,403 


2,629 


1, 363 


Michigan.. 


10, 042 


10, 934 


7, 869 


4, 474 


3, 395 


2,678 


Minnesota 


5' 386 


6', 884 


4! 852 


3^ 115 


1, 737 


1,902 




5^ 359 


5,' 947 


5, 009 


3,' 266 


l' 743 


1 405 


Missouri 


8, 640 


10! 570 


. 7^029 


5^ 368 


1,' 661 


1, 954 


Montana 


1,498 


1, 307 


1, 003 


883 


120 


164 


Nebraska 


2 966 


3 579 


2 460 


1 724 


736 


423 


Nevada.. . 


' 227 


' 268 


187 


187 




5 


New Hampshire 


1 048 


1 020 


661 


378 


283 


195 


New Jersey 


7, 526 


9^717 


4, 786 


3, 267 


1,519 


1, 206 


New Mexico 


1, 952 


1, 294 


1, 427 


1, 134 


293 


282 


New York City 


10, 555 


16 850 


10, 062 


6, 080 


3, 982 




New York (excluding New York City). 


10 415 


12! 500 


8, 811 


5' 179 


3' 632 


2 4, 634 


North Carolina 


7 601 


g' 95§ 


8* 872 


6* 843 


2 029 


2, 541 


North Dakota 


% 640 


1^793 


I, 353 


1, 100 


'253 


381 


Ohio 


10, 318 


14. 729 


10, 282 


6, 870 


3, 412 


3, 812 


Oklahoma 


5 711 


7 224 


6 456 


3 466 


2 990 


3, 109 


Oregon 


1 765 


1 927 


l' 389 


' 861 


' 528 


302 


Pennsvlvania 


16 474 


22 003 


13' 892 


6 672 


7 220 


7, 727 


Rhode Island 


lj 588 


1^947 


'924 


'541 


'383 


104 


South Carolina 


4,696 


6, 135 


3, 384 


2, 648 


736 


1, 050 


South Dakota 


3, 039 


1, 834 


1, 238 


963 


275 


486 


Tennessee . 


7, 013 


8, 923 


7, 031 


5. 929 


1, 102 


1, 370 




14, 552 


18, 902 


15, 330 


11, 011 


4, 319 


4 684 


Utah 


1, 662 


1,615 


1, 079 


807 


272 


' 372 


Vermont 


576 


640 


624 


447 


177 


248 


Virginia 


6, 002 


7, 439 


5. 347 


4, 138 


1, 209 


1,506 


Washington.. L 


3, 852 


3, 940 


3.202 


2. 249 


953 


620 


West Vireinia. . 


5,819 


4, 399 


5, 187 


2, 741 


2, 446 


3, 057 


Wisconsin .... . 


6, 258 


7, 621 


0, 533 


1, 993 


3", 540 


2,763 


Wyoming. 7. ... ... 


596 


730 


578 


493 


' 85 


119 


Alaska . 




3 80 


33 


33 






Hawaii 






296 
3, 213 
270 


296 
3, 047 
270 






Puerto Rico. . . . 


2, 338 


4, 898 
170. 


166 




Virgin Islands.. .. . .. .. 













1 June 1943 data not available; average based on previous months. 

2 Includes New York City. 

3 Based on operation of the program for 5 months only. 



FINAL REPORT, FISCAL YEARS 1936-1943 255 

Table 15. — Average monthly earnings of youth employed on the NY A out-of-school 
work program, by resident status and by States, fiscal years 1940 and 1941 



State or Territory 



Grand total. 



Alabama- 
Arizona. .. 
Arkansas.. 
California. 
Colorado.. 



Connecticut 

Delaware 

District of Columbia. 

Florida 

Georgia — 



Idaho... 
Illinois- 
Indiana. 

Iowa 

Kansas. 



Kentucky 

Louisiana 

Maine 

Maryland 

Massachusetts. 



Michigan... 
Minnesota- 
Mississippi. 
Missouri- 
Montana. . . 



Nebraska -- 

Nevada 

New Hampshire -- 

New Jersey - 

New Mexico— 

New York City 

New York (excluding New York 

City) 

North Carolina 

North Dakota 

Ohio 



Oklahoma 

Oregon 

Pennsylvania... 
Rhode Island.. . 
South Carolina. 



South Dakota. 

Tennessee 

Texas 

Utah 

Vermont 



Virginia 

Washington. _ 
West Virginia . 

Wisconsin 

Wyoming 



Alaska 

Puerto Rico... 
Virgin Islands. 



Fiscal year 1940 



Total 



Sir, 



In residence 



14.81 
14. 32 
13. 12 

16. 69 
15. 36 

17.31 
14. 14 
15. 62 

12. 32 
15.44 

17. 52 
15. 92 
16. 14 
14.78 
13.72 

15.15 

15. 92 
22. 59 

13. 99 
17. 45 

16.20 

17. 75 

13. 40 

14. 98 

16. 21 

15. 25 
14. 22 

18. 05 

17. 78 
16.30 
20. 99 

16.73 

14. 40 

15. 57 

16. 59 

16. 13 
16. 35 

16. 74 
15. 41 

13. 75 

13. 19 
12. 75 
15. 41 

17. 22 

15. 47 

14. 59 

16. 71 

15. 26 

17. 00 
14. 00 



.38 



$22. 10 



N.ot in 
residence 



$15. 15 



20. 76 
23. 12 
18. 67 
23. 89 

21. 37 

25. 05 



15. 34 
25.04 

25. 74 

24. 48 
27.11 
24. 86 

26. 97 
18. 21 

23.03 
18. 72 
38. 47 
22. 64 
21.43 

26. 87 
22:69 
19. 12 
26. 75 
21.48 

22. 62 

17. 00 
23 92 
25.30 

23. 68 
27. 17 

26. 18 
24. 14 

24. 85 
22. 80 

22. 14 
22. 56 

24. 74 
22. 51 

16. 25 

18. 58 
21.80 

22. 30 
27.05 

4. 47 

22.64 

23. 33 
28. 16 

25. 65 



12. 73 

13. 95 
10.91 

16. 54 

14. 90 

17. 04 
14. 14 

15. 62 
11.35 

12. 07 

13. 75 

15. 60 

16. 03 

14. 68 
12.63 

13.93 
13. 30 

15. 53 

13. 60 
17.40 

15.63 

17. 55 
11.55 

14. 66 

15. 50 

14.67 
14. 15 

16. 30 

17. 52 

14. 53 
20. 99 

16. 23 
13. 44 
13. 57 
16. 36 

13.33 

15. 67 

16. 56 
15. 15 
11.47 

12. 34 
11.38 
14. 14 
15. 84 

15. 56 

13. 90 

16. 24 

13. 54 
16. 48 

14. 00 



Fiscal year 1941 



Total 



In residence 



$15. 



20. 44 



8. 92 



14. 22 

15. 08 
11.62 
16. 00 
16. 10 

16. 25 
14. 19 
15. 18 

12. 72 
15. 00 

18.54 
15. 80 
15. 07 
15. 20 

15. 21 

14. 48 
15. 14 
22. 12 

13. 74 
16.31 

16. 75 

17. 32 

14. 54 

14. 94 
16.38 

15. 48 
14.91 
16.28 

16. 90 

14. 83 

18. 65 

16. 95 
15. 19 

17. 88 

15. 37 

16. 47 
16. 81 

16. 89 
15. 12 
14. 43 

16. 93 

13. 52 

14. 64 
15.59 

17. 60 

15. 07 

16. 83 
16. 78 
17. 04 
14.69 

14. 35 
10. 55 
10. 18 



$21. 83 



21. 14 
23. 04 
18. 43 
23. 12 
21. 88 

22. 48 



22.37 
23. 37 

24. 28 

19. 60 

24. 38 

23. 01 
19.64 

20. 75 
19. 97 
32. 36 

25. 39 
22.03 

24. 27 

24. 70 
21. 45 
22.11 
23. 17 

19. 78 
20. 30 
19.41 

22. 29 

23. 85 
30.63 

26. 12 

23. 05 

25. 58 
22. 10 

20. 82 
23.48 

24. 29 
21.47 
16. 09 

19. 82 
23. 46 

20. 54 
24. 16 
22. 43 

24.67 
21.53 
28. 38 
23. 75 



Not in 
residence 



23. 13 
23.68 



$14. 



12. 56 

14. 32 
11.00 

15. 66 



16. 01 
14. 19 
15. 18 

11. 57 

12. 49 

14. 15 

15.58 

14. 85 

15. 07' 

13. 45 

13. 36 

12. 95 

17. 25 

13. 63 

16. 26 

16.35 
16. 77 

12. 64 

14. 76. 

15. 52 

15.03 
14. 73 
14. 92 
16.53 
14. 47' 

18. 64- 

16.31 
14.24 
14. 82 
15. 08 

14. 10 
15.91 

16. 62 

14. 91 

13. 01 

15. 83 
12. 33 
13.44 
14. 16 
16.71 

14.03 

16. 59 
14.09 
16. 47 

14. 69 

14. 35- 
9. 9& 
8.11. 



256 



NATIONAL YOUTH ADMINISTRATION 



Table 16. — Average monthly earnings of youth employed on the NY A out-of-school 
work programs, by resident status and by States, fiscal year 1942 



State or Territory 



Regular program 



Total 



In 

residence 



Not in 
residence 



Youth work defense program 



Total 



In 

residence 



Not in 
residence 



Grand total. 



$15. 99 



Alabama. . 
Arizona. 
Arkansas. 
California- 
Colorado. . 



Connecticut 

Delaware 

District of Columbia- 
Florida 

Georgia 



Idaho... 
Illinois. . 
Indiana- 
Iowa 

Kansas _ 



Kentucky 

Louisiana 

Maine 

Maryland 

Massachusetts. 



Michigan... 
Minnesota.. 
Mississippi- 
Missouri 

Montana. .. 



Nebraska 

Nevada 

New Hampshire. 

New Jersey 

New Mexico 



New York City 

New York (excluding New York 

City 

North Carolina 

North Dakota 

Ohio 



Oklahoma 

Oregon 

Pennsylvania. . 
Rhode Island 
South Carolina. 

South Dakota.. 

Tennessee 

Texas 

Utah . 

Vermont 



Virginia 

Washington. . 
West Virginia. 

Wisconsin 

Wyoming 



Alaska 

Hawaii 

Puerto Rico... 
Virgin Islands. 



15. 29 

16. 29 
13.85 
15. 98 
16. 36 

15. 66 
16. 00 
17. 03 

14. 78 

16. 45 

17.64 
16.19 
15. 17 

16. 90 

15. 75 

15. 93 
13.99 

17. 22 
13.96 
17. 36 

17. 25 
17. 19 
14. 98 

14. 22 
18. 30 

16. 77 

15. 91 

16. 91 
17.14 

17. 20 

17. 84 

15. 93 
16.12 
18. 14 
14. 94 

18. 28 

14. 94 

17. 63 

13. 87 

15. 51 

18. 07 

14. 25 
15.56 

16. 29 
19.14 

15. 84 

17. 28 
15. 94 
17.31 
17. 29 

14. 59 
18.07 
12.99 
12. 62 



$21.20 



21.23 
23.79 
20.15 
22. 44 
20. 91 

20. 63 



23.28 
22. 01 

22. 05 
21.06 
19. 80 
24. 41 
18. 07 

20.38 
16. 54 



22. 37 

22. 03 
22. 95 
17. 47 
22. 67 
19.11 

20.15 



21.90 
23.41 

22. 99 

26.87 

24. 63 
21.01 

23. 71 
18. 83 

23.14 
21. 40 
17.13 



21.20 

20. 91 
22. 75 
18. 32 
20. 76 
20.26 

24. 23 
14, 39 
23.13 
23.97 
23.66 



$15. 47 



13.90 
15. 80 
13. 24 
15. 40 
15.61 

15. 56 

16. 00 
17. 03 

13. 43 
14.68 

15.04 

15. 96 

14. 94 

16. 81 
15. 06 

15. 21 
13.51 

17. 22 
13.96 
17. 31 

17. 10 
17. 00 

14. 41 
13.74 
18.20 

16. 38 

15. 91 

16. 61 
16. 89 
16. 96 

17. 82 

15. 22 
15. 60 
15.90 

14. 83 

15. 46 
14.31 
17. 65 
13.87 

14. 84 

17.35 
13.38 

15. 25 
15. 38 
19. 10 

14. 84 
17. 29 

15. 46 

16. 79 
16. 95 

14. 59 
?8. 07 
12.19 
9. 21 



$17. 58 



17. 54 

18. 41 
13.90 

19. 55 
15. 55 

12.80 

15. 74 
18. 26 

16. 56 
19.18 

18. 80 

16. 57 
15. 99 

17. 63 
18.08 

14. 80 
13.49 
22. 70 
15. 07 

17. 00 

18. 75 

18. 86 
15. 57 
15. 67 

19. 74 

18. 25 



18. 22 
19.70 
16.69 

14. 96 

19. 76 
16. 04 
21.46 
19. 28 

18. 91 

16. 66 

19. 90 
13.35 

19. 54 

21.66 
14. 82 

17. 31 
17.12 

20. 24 

19. 24 
14. 58 

18. 31 
19. 08 
16.84 



$20. 85 



22. 22 
22. 62 
22. 81 
25. 04 
17. 79 

9. 71 



21.25 
22. 31 

21.43 
21.24 

17. 55 
20.26 

19. 87 

18. 49 
16. 95 
23.34 
10. 54 
20.36 

20.12 
21.21 
18. 18 
27. 22 

20. 64 

22. 30 



22. 67 
23.00 
19. 38 



25. 93 
19. 02 
21.88 
25.40 

21.09 

19. 79 
22. 31 
17. 44 

20. 79 



22. 70 
19. 87 
21.93 
20.93 

23. 39 

20.23 
15. 62 
19. 96 
22. 68 
19. 52 



19.03 



FINAL REPORT, FISCAL YEARS 1936-1943 257 

Table 17. — Average monthly earnings 1 of youth employed on the NY A out-of- 
school work program, by resident status and by States, fiscal year 1943 2 



State 



War production training program 



Total 



In residence 



Grand total. 



Alabama.. 
Arizona.— 
Arkansas - 
California- 
Colorado-. 



Connecticut 

Delaware 

District of Columbia. 

Florida 

Georgia 



Idaho. 
Illinois _. 
Indiana. 

Iowa 

Kansas - 



Kentucky 

Louisiana 

Maine 

Maryland 

Massachusetts. 



Michigan. . 
Minnesota- 
Mississippi. 
Missouri -. 
Montana.. 



Nebraska 

Nevada 

New Hampshire. 

New Jersey 

New Mexico 



New York 

North Carolina . 
North Dakota.. 
Ohio 



Oklahoma 

Oregon 

Pennsylvania.. . 
Rhode Island. _. 
South Carolina. 

South Dakota... 

Tennessee 

Texas 

Utah 

Vermont 

Virginia 

Washington 

West Virginia. . 

Wisconsin 

Wyoming 





$11.44 


$6. 40 


$14. 42 




8. 46 


6. 82 


14. 03 




9. 55 


6. 55 


13. 02 




9. 90 


5. 03 


11. 99 




9. 37 


5. 20 


14. 52 




11.05 


6. 47 


14. 59 




7. 42 


3. 61 


12. 70 




11 65 




11 65 




11. 29 




11. 29 




8.54 


6. 54 


14. 55 




8.49 


6.28 


13. 35 




8. 82 


6. 62 


14. 19 


-- 


12. 85 


6. 75 


13. 78 




12. 18 


5. 46 


14. 03 




13.24 


6. 03 


14. 58 




9. 27 


6. 43 


12. 65 




11. 54 


5. 47 


13. 58 




10. 17 


5. 66 


11. 97 




8. 43 


7. 50 


13. 72 




8. 78 


3. 42 


10. 91 




12. 56 


5. 11 


13. 26 




15. 08 


6. 69 


17. 17 




10. 74 


6. 02 


14. 89 




7.46 


5.27 


13. 08 




11.67 


5. 95 


13. 12 




8. 81 


6. 66 


15. 05 




9. 65 


6. 40 


14. 49 




15. 89 




15. 89 




11.86 


6. 33 


15. 28 




12. 18 


6.70 


12. 62 




13. 64 


7. 28 


16. 59 




3 14. 07 


3 7. 59 


3 14. 95 




9. 12 


6. 95 


14. 18 




9. 41 


6. 21 


15. 61 




14. 05 


10. 94 


15. 39 




11.07 


7.20 


14.91 




8. 31 


6. 16 


14.00 




14. 40 


6. 09 


15. 94 




12. 22 




12.22 




8. 13 


5. 51 


14. 14 




11.76 


7. 45 


16. 06 




11.40 


6. 33 


13. 01 




10. 00 


6. 35 


13. 81 




10. 36 


6.50 


15. 78 




12. 41 


6. 46 


15. 89 




8.11 


6. 50 


14. 71 




5. 88 


3. 89 


14. 61 




11.56 


5. 92 


14. 94 




12. 22 


6. 04 


15.11 




10. 03 


6.01 


14. 44 



1 Represents net earnings of youth exclusive of the cost of subsistence services. 
- June 1943 data not available; average based on previous months. 
3 Includes New York City. 



258 



NATIONAL YOUTH ADMINISTRATION 



Table 18. — Percentage distribution of youth employed on the NY A out-of-school 
work program, by sex and by type of project, fiscal years 1940 and 1941 





Fiscal year 1940 


Fiscal year 1941 


Type of project 




























1 otal 


Male 


Female 


Total 


Male 


Female 


Total -. 


100.0 


100.0 


100.0 


100.0 


100.0 


100.0 


Roads, streets, and bridges. 


4.6 


— 

8.2 


. 1 


3.9 


6.9 


. 1 


Improvement of grounds around public buildings 


4.7 


8.2 


. 1 


2.7 


4.7 


.2 


Construction, repair, and remodeling of public build- 
















10.6 


18.6 


.3 


12.0 


21.2 


.3 


"Ro/^rnQtinncil f a r»il \i ipq nt h or than hiTliVlincrc 


8. 


14. 1 


. 2 


5.4 


9. 5 


. 1 


Conservation, irrigation, and flood control. 


2.0 


3.5 


.1 


1.8 


3.2 


.1 


Water and sanitation . . .. 


.3 


.6 


0) 


.4 


.6 


(i) 




18. 3 


19. 4 


16. 8 


30. 6 


33. 


27. 6 


Resident projects. . 


10.5 


9.7 


11.4 


10. 3 


10. 7 


9.8 


Clerical assistance . ... - . 


21.9 


8.3 


39.5 


19.2 


5.7 


36. 1 


Research, statistical, and survey assistance. 


.1 


.1 


.1 


. 1 


.1 


.2 


Public health and hospital assistance - 


2.9 


.9 


5.4 


4.0 


.8 


7.8 


Library service . 


2.0 


.4 


4.0 


1.2 


.2 


2.4 


Arts and crafts 


1.6 


1.4 


1.9 


1.4 


1.3 


1.5 


Recreational assistance. ... ... 


4.3 


3.7 


5.1 


2.0 


1.6 


2.6 


Nursery school assistance. -. - - 


1.6 


.1 


3.5 


.8 


.1 


1.8 


School lunch and food preparation 


1.3 


.1 


2.8 


4. 1 


.4 


8.5 










. 1 


(') 


.3 


Home service 


3.4 


.3 


7.4 






Projects not elsewhere classified.-. . .. 


1.9 


2.4 


1.3 

















i Less than Ho of 1 percent. 



Table 19. — Percentage distribution of youth employed on the NYA out-of-school 
work programs, by sex and by type of work activity, fiscal year 1942 



Type of work activity 


Regular program 


Youth work defense 
program 


Total 


Male 


Female 


Total 


Male 


Female 


Grand total . ... . 


100.0 


100.0 


100.0 


100.0 


100.0 | 100.0 


Construction activities, total .. . _ ... 

Roads, streets, and bridges _ .. 

Improvement of grounds around public buildings. 

Building construction, total . .. ... 


21.5 


53.4 


.7 


6.3 


7. 9 j .3 


2. 1 

2.3 


5.2 
5.7 


0) 

. 1 


0) 

. 1 


0) 

.2 


0) 
0) 


13.3 


33.3 


.4 


5.3 


6.6 


.3 


Farm shops and vocational buildings. 


3. 1 
1.1 

1.5 
7.6 
1.6 
1. 1 
.4 
.7 


7.6 
2. 8 

3.9 
19.0 
4.0 
2.6 
.9 
1.7 


. 1 
. 1 

0) 

.2 
. 1 
. 1 

0) 
0) 








NYA shop buildings ... 

NYA resident center buildings (other than 
shop buildings) 


2.7 

2.1 
.5 


3.4 

2.7 

. 5 


.2 

0) 

.1 


Other building construction ... 

Recreational facilities (excluding buildings) . . 


Conservation activities . . . 








Water and sanitation. . ... ..... 








Miscellaneous construction activities ... . _ 


.9 


1. 1 


0) 


Production activities, total . .... 


34.5 


36.8 


33.0 


93.7 


92. 1 


99.7 


Machine and metal working, total 


1.0 


2.2 


. 1 


56.8 


62.4 


35.6 


Machine shop . . 


.4 
.3 
.1 
.1 
. 1 


1.0 

.6 
.3 
.1 
. 2 


0) 

. 1 

0) 
0) 
0) 


26.4 
15. 7 
12.0 
1.4 
1.3 


28.9 
16.2 
14.0 
1.7 
1.6 


17. 1 
13.8 
4.2 
.3 
.2 


Sheet metal... . ..... . .. 


Welding. _. 


Foundry .... .... . . 


Forge and blacksmith . ....... 


Radio and electrical, total 


. 7 


1.4 


.2 


5.3 


5.1 


6.2 


Radio .. ... . .. 


.5 
.2 


1.0 
.4 


.2 

(0 


4. 1 
1.2 


3.9 
1.2 


4.9 
1.3 


Electrical . . ...... 


Automotive and mechanical, total . ... 

Automotive maintenance and repair. _. . . . 
Farm implements and equipment . . 


1.2 


2.9 


. 1 


7.4 


9.0 


1.3 


1.0 
.1 

.1 


' 2.4 
.2 
.3 


. 1 

0) 

(>) 


5.0 
. 1 
2.3 


6. 1 
. 1 
2.8 


1.0 


Aviation services . .. 


.3 


Woodworking, total ... . 


9. 2 1 19. 1 


27T 


9.6 


10.4 


6.5 


Patternmaking. ...... 

' Joinery . .. . 


.2 
.2 
8.8 


.2 

.5 
18.4 


0) 

. 1 

2.6 


1.4 
1. 1 
7. 1 


1.6 
1.2 
7.6 


.4 
.8 

5.3 


Other woodworking . . 



1 Less than one-tenth of 1 period. 



FINAL REPORT, FISCAL YEARS 1936-1943 259 



Table 19. — Percentage distribution of youth employed on the NY A out-of-school 
work programs, by sex and by type of work activity, fiscal year 1942 — Continued 









Type of work activity 


Regular program 


Youth work defense 
program 


Total 


Male 


Female 


Total 


Male 


Female 


Production activities— Continued. 

Sewing, total ... . 


13.4 


.3 


21.9 


8.5 


.2 


39.9 


Industrial 


3.3 
10.1 
.4 
.6 

2.5 
. 5 
.7 


. 1 
.2 
.8 
1.5 
1.6 
. 2 
.8 


5.4 
16.5 
.2 

(') 
3.1 
.8 
.8 


8.5 


.2 


39.9 


Domestic.-. - .. . . 


Drafting and mapmaking 








Production of construction materials .. ... 








Food production.. . . . .... 








Craft activities ..... .. .. .. 








Graphic activities . .... .. ... ... . ... 








Miscellaneous production, total 








3.0 


3.5 


2.7 








Industrial laundry.. ...... ... ... . 








1.0 
. 1 
.1 
1.8 
1.3 


.3 
.1 
.1 
3.0 
2.5 


1.3 
.1 
.2 

1.1 
.4 








Industrial ceramics and enamelware 








Industrial weaving .. ..... 








Other production activities.. . ..... 








Shop maintenance and service activities 

Professional and clerical activities, total . ... 


6.1 


5.0 


10.2 


44.0 


9.8 


66.3 








Clerical assistance.. .. . 








26.5 
3 


4.7 
2 


40.6 
4 








Research, statistical, and survey assistance 








Public health and hospital assistance, total 








7.5 


1.2 


11.7 








Hospital attendants 








6.6 
.3 
.6 
.8 
.6 
.9 

5.2 
.9 
.7 
.6 


.9 
.2 
. 1 
.1 
.5 

0) 

.9 
.8 
1.0 
.4 


10.3 
. 5 
.9 
1.2 
.6 
1.5 
8.1 
1.0 
.5 
.7 








Laboratory assistance ... . ... 








Public health and clinics 








Library service 








Recreational assistance. .. . ..... 








Nursery school assistance .. ... 








School lunch and food service. .. ___._____„_____ 








Institutional service, n. e. c ... . . ... . 








Music . .- .. 








Miscellaneous professional and clerical activities. . 









1 Less than one-tenth of 1 percent. 



Table 20. — Percentage distribution of youth employed on the NY A out-oj-school 
work program by sex and by type of work activity, fiscal year 1943 





War production training program 


Type of work activity 










Total 


Male 


Female 


Grand total. 


100.0 


100.0 


100.0 


Shop activities, total . 


96.4 


99.6 


92.5 








Machine . .. 


31.4 


34.0 


28.3 


Aircraft sheet metal... 


2.2 


1.5 


3.0 


Otb er sheet metal. 


12.6 


10.3 


15.3 


Arc weldine 


17.4 


24.1 


9.0 


Gas welding.. .. . . . 


3.1 


3.1 


3.1 


Aircraft welding.. 


.9 


.7 


1.0 




1.3 


1.8 


.5 


Forge 


.7 


1.0 


.2 


Radio -. 


7.9 


8.3 


7.4 


Electrical . .. ... 


.7 


.9 


.5 


Automotive mechanics .. 


2.6 


3.7 


1.2 




2.0 


2.7 


2.3 




.7 


1.1 


.1 




.8 


1.0 


.6 




.3 


.5 


.2 




1.2 


.7 


1.8 




3.4 


2.6 


4.5 




6.0 


.1 


13.3 




1. 1 


1.1 


1.1 




.1 


.4 


.1 




3.4 


.2 


7.4 




.2 


.2 


.1 



566597—44 18 



260 



NATIONAL YOUTH ADMINISTRATION 



Table 21. — Number of youth who left the NY A out-of-school work program to 
accept jobs in private industries and public agencies by sex and by type of industry 
or employment, fiscal year 1941 



Type of industry or employment 



Total 



Male 



Grand total 

Private and public employment, total 

Private employment, total 1 

Manufacturing industries, total 

Food and kindred products, and tobacco 

Textile and textile products 

Lumber, furniture, and finished products . 

Paper and allied products 

Printing, publishing, and allied industries 

Rayon and allied products 

Chemical products (excluding rayon and allied products) ... 

Petroleum and coal products 

Rubber products 

Leather and leather products 

Stone, clay, and glass products 

Iron and steel and their products (excluding machinery) 

Nonferrous metals and their products (excluding machinery) 

Electrical machinery and equipment 

Agricultural machinery and equipment . 

Metalworking machinery and equipment 

Other machinery and equipment 

Aircraft and parts 

Automobile and automobile equipment 

Ship and boat building and repairing 

Railroad and other transportation equipment 

Other manufacturing industries 

Nonmanufacturing industries, total 

Agriculture, forestry (excluding logging) and fishing 

Mining, quarrying, and petroleum production 

Construction 

Air transportation and service 

Railroads (interstate) 

Other transportation and services 

Telephone, telegraph, and related services 

Electric, gas, and other local public utilities 

Wholesale and retail trade 

Finance, insurance and real estate 

Service industries (excluding domestic service) 

Domestic service . 

Other nonmanufacturing industries 

Unknown industries 1 

Public employment 

Military service, total. 

Selective Service 

Voluntary .... 



372, 



261, 989 



357, 820 
324, 777 
82, 625 



246, 861 
219, 319 
55, 970 



8,004 
14, 853 
5, 752 
2, 328 

2, 317 
834 

2, 171 
724 
1,495 

3, 798 
2, 159 
8, 801 
2, 167 

5, 218 
886 

2, 045 
3, 185 
4,244 
3, 165 
1, 183 
1, 064 

6, 232 



117, 252 



20, 320 
1,754 

10, 195 
406 
3, 362 
3, 825 

3, 010 
1, 458 

30, 452 

4, 020 
25, 611 

8, 062 
4, 777 



124, 900 
33, 043 
15, 128 



5,810 
9,318 



5, 056 
6, 093 
5, 030 
1,507 
1, 367 

470 
I, 410 

557 

896 
2,072 
1, 532 
7, 470 
1, 456 
3,226 

740 

1, 764 

2, ' 651 
3,988 
2, 626 
1, 143 
1,005 
3,911 



75, 139 



19, 642 
1, 715 
9, 793 
360 
3,263 
3, 514 
1, 193 
972 
17, 156 
755 
12, 762 
1,054 
2; 960 



88, 210 
27, 542' 
15, 128 



5, 810 
9,318 



1 Includes an estimated number of youth who left for unknown reasons. 



FINAL REPORT, FISCAL YEARS 193 6-194 3 261 



Table 22. — Number of youth who left the NY A out-of-school work programs 1 
to accept jobs in private industries and public agencies, by sex and by type of 
industry or employment, fiscal year 1942 



Type of industry or employment 


Total 
368, 129 


Male 
252, 549 


Female 


Grand total-- - 


133, 580 




370, 786 
341, 567 
101, 363 


237, 443 
219,883 
68, 412 


133, 343 
121, 684 
32, 951 


Private employment, total 2 . 






8,613 
15, 436 
4, 420 
1,701 
2, 174 
480 
1,953 
883 
1,014 
2, 889 
1,739 
9, 054 
3, 316 
4, 565 
530 
5, 161 
4,988 
12, 664 
2, 000 
8,619 
1,090 
8,074 


4, 656 
3, 651 

3, 651 
981 

1,044 
191 
1,205 
731 
567 
1,244 
1,151 
7, 964 
2, 756 
3, 131 
456 

4, 747 
4, 198 

10, 320 
1,601 
8,461 
1,032 
i, 674 


3, 957 
11, 785 
769 
720 

1,130 
289 
748 
152 
447 

1,645 
588 

1,090 
560 

1,434 
74 
414 
790 

2, 344 
399 
158 
58 

3,400 


Lumber, furniture, and finished lumber products _ 


Rayon and allied products 


Chemical products (excluding rayon and allied products) 

Petroleum and coal products 




Leather and leather products ... 


Stone, clav, and glass products- . . . ._ 

Iron and steel and their products (excluding machinery)... 
Nonferrous metals and their products (excluding machinery).. 
Electrical machinery and equipment... ..... . 




Other machinery and equipment.. 


Aircraft and parts. .. . 


Automobiles and automobile equipment. . 

Ship and boat building and repairing. 


Railroad and other transportation equipment 

Other manufacturing industries 


Nonmanufacturing industries, total 


113, 259 


64, 333 


48, 926 


Agriculture, forestry (excluding logging) and fishing 

Mining, quarrying, and petroleum production 

Construction . . .. . . 


19,716 
1,790 
8, 066 
583 
2, 563 
2, 684 
3, 038 
1,531 

29, 768 
4, 100 

23, 885 
7, 798 
7, 737 


18, 638 

1, 723 
7. 633 

517 
2, 456 

2, 307 
1,080 

985 
13, 484 

660 
9, 834 

894 
4, 122 


1,078 
67 
433 
66 
107 
377 
1,958 
546 
16, 284 
3, 440 
14, 051 
6, 904 
3, 615 


Air transportation and service 


Railroads (interstate).. - .-- . . ... . 


Other transportation and services.. 

Telephone, telesraph, and related services . 

Electric, gas and other local public utilities 

Wholesale and retail trade. 


Finance, insurance, >and real estate. . . .. . 

Service industries (excluding domestic service). 

Domestic service. . .. - - 


Other nonmanufacturing industries. 


Unknown industries 2 


126, 945 
29, 219 


87, 138 
17, 560 
15, 106 


39, 807 
11, 659 
237 


Public employment. 


Selective service - 


15, 343 


5, 850 
9, 493 


5, 850 
9, 256 






237 





J Includes the regular out-of-school work program and the youth work defense program. 
* Includes an estimated number of youth who left for unknown reasons. 



262 



NATIONAL YOUTH ADMINISTRATION 



Table 23. — Number of youth who left the NY A out-of -school work program to 
accept jobs in private industries and public agencies by sex and by type of 
industry or employment, July 1942 through May 1943 



Type of industry or employment 



Grand total 

Private and public employment, total i 

Manufacturing industries, total 

Direct war industries, total 

Aircraft frames and engines 

Smelting and refining, steel works and rolling mills 

Brass, bronze, copper, aluminum, and other nonferrous 

products 

Electrical machinery, apparatus, and supplies 

Foundry, machine shop, and other iron and steel products 

Other machinery and equipment (excluding metalworking 

machinery) 

Machine tools and accessories 

Ordnance and accessories (including small arms, explosives, 

and pmmunition) 

Ship, boatbuilding, and navy yards 

Transport and combat vehicles 

Instruments, optical goods, and abrasives 

Indirect war industries, total 

Textile, rayon, leather, and allied products 

Petroleum, chemical, rubber, and coal products (excluding 

explosives) 

Food and kindred products 

Other manufacturing industries 

Nonmanufacturing industries, total 

Agriculture (excluding forestry and fishing)... 

Construction 

Communication, transportation, and public utilities 

Wholesale and retail trade . 

Service industries (including Government service n. e. c.) 

Other nonmanufacturing industries 

Industry unknown 1 

Military service, total 

Selective service. 

Voluntary 



"War production training 
program 



Total 



887 



179. 056 
96, 275 
78, 172 



18, 925 
2,279 

1,318 

4, 096 
11,007 

2, 532 

3, 830 

5, 998 
26, 276 

1, 314 
597 



18, 103 



8, 857 

1, 441 
2,678 
5, 127 



36, 062 



5. 870 
2,141 

4, 137 
6,117 

12,573 

5, 224 
46, 719 



19, 831 



8, 026 
11,805 



Male 



126, 307 



106, 808 
57, 357 
50, 341 



8, 306 
1, 777 



1, 803 
7, 609 

1, 914 
2,427 

2, 845 
21, 622 

924 
215 



016 



1. 050 
1, 400 
3, 102 



20, 661 



5, 159 
2, 050 
2.909 
2,715 
4, 963 
2,865 
28, 790 



19, 499 



8, 026 
11, 473 



i Includes an estimated number of youth who left to seek employment and for unknown reasons. 



Index 



Note. — This index is not intended to be exhaustive. For example, no attempt has been 
made to list all publications used as references, or each locality, county, and State used to 
illustrate operations. There is no detailed listing of the types of work performed by NYA 
students and project youth, except by broad work classifications. 



A 

Accidents, 229, 230. 

Administrative costs, 28, 29. See also 
Labor costs and Nonlabor costs. 

Administrative organization, 25-41. 
See also Student Work Program, 49- 
51 ; Out-of-School Work Program, 
91-99 and 195-205. 

Advisory Commission to the Council on 
National Defense, 214. 

Advocacy of overthrow of government 
prohibition, 53, 88. 

Age: population statistics, 11-16, 21; 
eligibility of students, 49, 50, 52; eli- 
gibility of out-of-school, unemployed 
youth, 26, 29, 85, 89; distribution, 
students, 73 ; distribution, out-of- 
school, unemployed youth, 120, 121, 
122 ; school-leaving age, out-of-school, 
unemployed, 126, 127. 

Allocation of funds. See Funds. 

American Committee for German Refu- 
gees, 131. 

American Federation of Labor, 105, 106. 

American Medical Association, 223. 

American Youth Commission, 44, 58. 

American Youth Congress, 31. 

Application, student work, 53, 58. See 
also Need of employment. 

Apprenticeship, 4, 18, 83, 106; apprentice 
training, 231, 232. 

Appropriations acts, 25-29, 85, 110, 111, 
117, 213-215, 229. 

Approval of projects, 91, 93, 138, 177. 

Area offices, 38, 39. 

Army posts, projects operated at, 94. 

Assignment : Student work, 59, 60 ; proj- 
ects, unemployed youth, 86-90 ; await- 
ing, 88, 89, 112. 



Attendance status of students, 52. 
Austria, 6, 7, 8, 84. 

B 

Baylor University, Waco, Tex., student 

work project, 61. 
BeU Aircraft, Buffalo, N. Y, 189. 
Bethlehem Shipyards, Bingham, Mass., 

189. 

Boeing Aircraft Co., Seattle, Wash., 206. 
Boston Navy Yard, Boston, Mass., 190. 
Boys. See Male youth. 
Bradley Field Air Depot, Windsor 

Locks, Conn., 189. 
Brooklyn Navy Yard, Brooklyn, N. Y., 

190. 

C 

California Shipbuilding Corporation, 

Wilmington, Calif., 162. 
California State survey of student work 

program, 79. 
Camps. See Resident projects and 

Work camps. 
Camps, unemployed young women, 92, 

93, 177-179. 
Carnegie Institute of Technology, Pitts- 
burgh, Pa., scholarship of NYA 

students, 76. 
Carnegie Steel Corporation, Pittsburgh, 

Pa., 162. 

Catholic youth organizations, 3, 31. 

Central State Teachers College, Stev- 
ens Point, Wis., 174. 

Certification to projects, 86-S9. See 
also Need of employment and Family 
income. 

Chaff ey Junior College, Ontario, Calif., 
62. 



263 



264 



INDEX 



Citizenship requirement, 53, 85, 88, 89, 
209. 

Civil Aeronautics Authority, 93, 94, 138, 
157. 

Civil Air Patrol, 193. 
Civil Service Retirement Act, 42. 
Civil service status, 42. 
Civilian Conservation Corps, 22, 23, 78, 
233. 

Clarkesville, Ga., resident project, 183. 
Classification of projects, 91, 92, 93, 94, 
96. 

College enrollments, 46. 

College and graduate students, NYA, 

53, 54, 55, 56, 57, 58, 66, 67, 68, 70, 

71, 73. 

Colleges and universities participating, 
50, 64. 

Colorado School, Work Council survey, 
need of NYA students, 68. 

Colorado State survey of student work 
program, 79. 

Colorado State Advisory Council on 
student work, 79. 

Committee for Catholic Refugees, 131. 

Committees: Executive committee, 26, 
30 ; local advisory, 31, 38, 40, 41, 105, 
131, 157, 158, 168, 187, 188, 194, 235; 
national advisory, 26, 30, 31, 64, 65, 
105, 131; State advisory, 31, 39, 40, 
65, 105, 227. See also Councils, stu- 
dent work program. 

Communist Union of Youth, 6, 7. 

Compensation, 229, 230. 

Congress of Industrial Organizations, 
105, 106. 

Cosponsors : Agencies, 38, 40, 91, 123, 
130, 135, 136, 137, 138, 140, 143, 152, 
153, 155, 163, 165, 172, 173, 181, 184, 186, 
187, 194 ; contributions, 91, 96, 97, 98, 
119, 234 ; supervision, 97, 98, 100, 101, 
119, 164, 170. 

Counseling. See Guidance. 

Councils, student work program : 
School work, 64, 78 ; college work, 65, 
78. 

Curtiss-Wright, Buffalo, N. Y., 190. 
Coyne, John P., 107. 

D 

Dallas, Tex., school work project, 63. 
Decentralization of administration, 32, 
33, 34, 49, 234, 236. 



Defense program, 20, 21, 28, 29, 94, 97,. 

100, 108, 111, 112, 115, 118, 119, 120,. 

133, 147, 156, 180, 189, 197, 199, 200,. 

202, 205, 206, 207, 208, 209, 213, 214,. 

215, 216, 217, 234, 235. 
Discrimination, 51, 82, 111, 190, 235. 

See also Negro youth. 
Douglas Aircraft, Santa Monica, Calif.,. 

190. 

Duration of employment, project youth, 
132, 133, 149, 178, 198. 

E 

Earnings, 26, 27 ; students, 55-58 ; proj- 
ect youth, 87, 88, 113-118, 177, 186,. 
191. 

Educational opportunities, equalization 

of, 43, 44, 48, 77, 78. 
Educational status, project youth, 19, 

44, 45. See also Age: distribution 

and school-leaving age. 
El Capitan, N. Mex., resident project, 

171. 

Eligibility of educational institutions, 
student work program, 49. 

Eligibility requirements : Students, 26, 
52, 53; project youth, 26, 85-89. See 
also Age; Certification; Need of em- 
ployment. 

Elmira, N. Y., resident project, 183. 

Employer relations, 104, 105, 107, 108. 

Employment, Division of, 32. See also 
Youth Personnel, Division of. 

Employment status of NYA students' 
parents, 72, 73. 

Employment opportunities, 85, 89, 93, 
112, 120, 121, 130, 131, 132, 133, 143, 
149, 155, 163, 167, 169, 172, 207. 

Employment, student work, 48, 53-56, 
234; projects, 109-112, 122-124, 177, 
180, 186, 188, 190, 234. 

Emporia, Kansas, school work project, 
63. 

England, 6, 8. 

Emergency Relief Appropriations Acts, 

26-28, 32. 
Executive Director, NYA, 30, 231. 
Executive Orders, 25, 26, 27, 29, 30, 

42, 48, 231. 

F 

Families of NYA students, employment 
status, 71 ; income, 53, 66-69 ; number 
in school, 70, 71; size, 69, 70. 



INDEX 



265 



Family income, project youth, 86, 87, 
89. 

Farm Security Administration, 86. 

Fascism, 2, 5, 6, 131, 233. 

Federal Committee on Apprentice 
Training, 231, 232. 

Federal Emergency Relief Administra- 
tion, 47, 177, 185. 

Female. See Women. 

Finance and Statistics, Division of, 32, 
33. 

Federal Security Agency, 25, 27, 32, 34, 
87, 113. 

Foremen, NYA shops. See Supervision, 
projects. 

Foremen's training program, 99, 101-101. 
Frey, John P., 107. 

Funds : Student work allotments, 50-52, 
78 ; expenditures, 55, 82, 234 ; out-of- 
school work program allocations, 91, 
117 ; expenditures, 100, 118, 119, 234. 

G 

General Electric Co., Lynn, Mass., 190. 
General Motors Corporation, Delco 

Radio Division, Kokomo, Ind., 162. 
Germany, 2-5, 7, 8, 84, 233. 
Girls. See Women. 
Glenn L. Martin, Baltimore, Md., 189. 
Grade distribution, NYA students, 74. 
Guidance, 98, 129, 130, 188, 195-204, 

209-211. See Personnel services, 

youth. 

H 

Handicapped youth, 129, 130, 151, 152, 
161. 

Health program, 85, 87, 217-226. See 
also Medical examinations ; Medical 
services. 

Hitler, 3, 4. 

Hours of work, students, 57; project 
youth, 113-117, 178, 216, 217. 

I 

Independent Pneumatic Tool Co., Chi- 
cago, 111., 162. 

Indiana University, Bloomington, Ind., 
scholarship of NYA students, 77. 

Induction training program, 101, 102, 
103, 216. 



Institutional participation, student 

work program, 48, 50, 64. 
Institutional responsibilities, 50, 53, 57, 

58, 59, 78. 
International Student Service, 31. 
Italy, 5, 6, 233. 

J 

Jewish youth organizations, 31. 
Job-training program, project youth, 
101, 103. 

K 

Kenedy, Tex., school work project, 62. 
L 

Labor costs, projects, 99, 100, 116, 118,. 
119. 

Labor Division, OPM, WPB, 214. 

Labor relations, 104-108, 145, 146, 147. 

Lincoln Institute, Lincoln Ridge, Ky., 
student work project, 62. 

Lockheed Aircraft Corporation, Bur- 
bank, Calif., 162. 

M 

Male youth, unemployment statistics, 
12-15, 21; NYA students, 55, 74; 
project youth, 109-112, 121, 122, 123, 
124, 126, 127, 128, 129, 219, 220, 221, 
222. 

McArdle Institute, University of Wis- 
consin, Madison, college work project, 
61. 

McCall, Chester Hayden, 30. 

Medical examinations, 165, 177, 179, 
188, 191, 193, 197, 209, 210, 218-223, 
225; dental defects, 219; eye defects, 
220; heart condition, 220; hookworm 
infection, 221; nose and throat, 220; 
tuberculosis, 220; venereal disease, 
221 ; weight and nutritional condition, 
220; other diseases, 222, 

Medical services, 94, 130, 177, 179, 188, 
191, 198, 197, 217, 218, 222^224, 226. 

Military reservations, projects at, 94. 

Military services, 14, 20, 21, 58, 95, 121, 
133, 159. 

Milliman, E. E., 107. 

Murray, Ky., resident project, 183. 

Mussolini, 5. 



266 



INDEX 



N 

National Administrator, NYA, 27, 28, 
30, 31, 32, 34, 35, 36, 38, 39, 40, 41, 
42, 56, 64, 85, 87, 90, 116, 141, 147, 
152, 213, 214, 218, 219. 

National Coordinating Committee for 
Aid to Refugees and Emigrants com- 
ing from Germany, 131. 

National Council of Administrators, 
214. 

National Fascist Institute for Social 

Welfare, 5. 
National Recovery Administration, 231. 
National Refugee Service Committee, 

131. 

National Resources Planning Board, 69, 
78. 

National Student Federation of 
America, 31. 

Need of employment, students, 52, 66- 
72 ; project youth, 85-87, 89, 90. 

Negro affairs, NYA director of, 32. 

Negro youth : unemployment statistics, 
13, 16, 17, 19; special college and 
graduate fund, 51, 52 ; students, 56, 
67, 68, 70, 71, 72, 73, 74, 75 ; examples 
of school work projects. 62, 63 ; 
project youth, 111, 112, 122, 124, 125, 
126, 127, 129, 145, 146, 151, 152, 161, 
174, 177, 178, 188, 190, 218, 219, 220, 
221, 222, 229. 

Negro school units constructed, 137. 

Nepaug village, Conn., resident project, 
183, 206. 

New York City School Work Council, 

survey of need of NYA students, 68. 
New workers, 10, 11, 14. 
New York City Welfare Council, 19. 
Non-labor costs, 118, 119. 
Non-resident projects, 135-176. 

O 

Oath of allegiance, 52, 89. 

Objectives, program, 24, 48, 84. 

Office of Administrator and Deputy Ad- 
ministrator, 32. 

Office of Labor Relations, 33, 107. 

Office of Production Management, 154, 
214. 

Office for Emergency Management, 214. 



Ohio State University, Columbus, Ohio, 
college work project, 61 ; survey of 
student work program, 80. 

Opera Nazionale Balilla, 5. 

Operations, division of, 204. 

Other-than-white youth. See Negro 
youth. 

P 

Pan-American Airways, New York City, 
190. 

Parollees, youth, 90, 130. 
Patterson Field, Fairfield, Ohio, 189. 
Payson, Utah, school work project, 62. 
Penal institutions, 94. 
Pennsylvania Bureau of Rehabilitation, 
130. 

Personnel, administrative practices, 33. 

Personnel supervisors, 88, 95, 132. See 
also Personnel services, youth. 

Personnel services, youth, 195-210. 

Petrillo, James G., 174. 

Philadelphia Ordnance Plant, Philadel- 
phia, Pa., 192. 

Physical accomplishments. See pro- 
duction items, projects. 

Placement in employment opportuni- 
ties, 200, 201, 202, 205-210. 

Poland, 6, 8. 

Portsmouth Navy Yard, Portsmouth, 
N. H., 190. 

Port Townsend, Wash., resident proj- 
ect, 183. 

President of the U. S., 26, 27, 28, 30, 
233. 

Pressman, Lee, 30. 

Princess Anne, Md., resident project, 
183. 

Private employment, acceptance of, 86, 
87, 90, 133. 

Production items: aircraft shops, 157, 
159; arts and crafts, 171; auto me- 
chanics, 161 ; camps for women, 178 ; 
conservation, 141, 142; construction, 
136, 137, 138, 139; electrical shops, 
160; foundries, 156; home economics, 
167 ; library, 174, 175 ; machine shops, 
157; metal shops, 155; museum, 175; 
radio shops, 159 ; recreational facili- 
ties, 228, 229; resident projects, 185, 
186, 187, 190, 192, 193; school lunch, 
168; sewing, 144, 145, 146; work* 
shops. 149, 150, 153, 154. 



INDEX 



267 



Project managers, 37, 90. 

Projects discontinued, 95, 96. 

Projects, examples of : aircraft shops, 
157, 158; arts and crafts, 171, 172; 
auto mechanics, 161 ; ceramics, 173 ; 
conservation, 141, 142 ; construction, 
137-139; library, 175; metal shops, 
155; music, 174; radio shops, 159, 
160 ; recreation, 227 ; research and 
subprofessional, 176; sewing, 143, 
144, 145. 

Projects, Federal expenditures, 97. 

Projects ineligible, 92, 94. 

Projects, nonconstruction, 92, 95. See 
also, Projects, nonmanual. 

Projects, nonmanual, 162-171. 

Projects, origin of, 91. 

Projects, planning and development of, 
91-96, 135. 

Projects, types operated : aircraft, air- 
ports and airways, aviation mechan- 
ics, 84, 93, 94, 96, 130, 136, 139, 148, 
157, 158, 159, 186 ; arts and crafts, 92, 

95, 171, 172; auto mechanics, 94, 96, 
99, 130, 148, 161, 185, 186, 189, 191; 
book repair, 92, 94; ceramics, 173; 
clerical and stenographic, 92, 95, 96, 

98, 130, 163-165, 185, 191 ; community 
development, 91 ; conservation, 91, 92, 
135, 136, 141-143; construction, 84, 
SI, 92, 95, 98, 99, 135, 136, 137, 138, 
139, 140, 141, 185, 188, 230 ; electrical, 
84, 94, 96, 99, 148, 160, 185, 186, 191 ; 
exhibits, 92; fine arts, 92, 174, 189; 
fingerprinting, 94; forge, 84, 94, 96, 

99, 148, 154, 155; foundries, 84, 94, 

96, 99, 148, 155, 156, 185, 191, 205 ; 
graphic, 95 ; home economics and 
home making, 92, 130, 167-170, 185, 
230; hospital assistance, 93, 165-167; 
improvement of grounds, 91, 95, 189 ; 
joinery, 96, 153; lens grinding, 130; 
library services, 91, 92, 95, 98, 174, 
175, 189; machine shops, 84, 94, 96, 
99, 119, 130, 148, 149, 150, 156, 157, 
185, 186, 187, 191, 205, 206; manual, 
84, 135-162; mechanical drafting, 96, 
130, 186, 189, 191; metal shops, 119, 
154, 155; museum, 92, 175 ; music, 95, 
173, 174 ; nursery schools, 92, 95, 168 ; 
patternmaking, 94, 96, 99, 148, 153, 
156, 1&5; photography, 172, 189; 



poster and silk screen painting, 172 ; 
radio, 84, 94, 96, 99, 130, 148, 151, 
159, 160, 185, 186, 187, 191; recrea- 
tional assistance and leadership, 84, 
91, 92, 95, 170, 171, 189; recreational 
facilities, 92, 95, 136; research and 
survey, 91, 92, 95, 176; roads, streets, 
etc., 92, 95, 136; school lunch assist- 
ance, 92, 95, 168; seaplane landing 
bases, 93, 94, 139, 157; sewing, 92, 94, 
95, 96, 99, 135, 143-146, 147, 148, 230 ; 
sheetmetal, 84, 94, 96, 99, 148, 150, 
185-187, 205, 206; shoe, repair, 161, 
186; statistical and subprofessional, 
84, 92, 176, 189; toymaking and re- 
pair, 92, 173; visual aids, 92, 173; 
vocational farm shops, 152, 153; 
welding, 94, 96, 99, 130, 148, 185-189, 
191, 205, 206; woodworking, 84, 92, 
94, 96, 99, 148, 153, 154, 186, 230; 
workshops, 92, 94, 96, 98, 99, 100, 111, 
135, 146-150, 185, 186, 189, 191, 205, 
206, 230. 

Property and Procurement, Division 
of, 33. 

Protestant youth organizations, 31. 
Q 

Quoddy resident project, 159, 179, 183, 
184, 187-190, 224. 

R 

Rates of pay, hourly, project youth, 57, 

113, 115, 116. 
Reasons for leaving projects, 132, 133. 
Reassignment of youth to projects, 86, 

133. 

Reclassification of project youth, 86, 87. 

Recreation services, 226-229. See also 
Projects, recreational assistance and 
leadership. 

Reform institutions, 94, 130. 

Refugee youth, 131. 

Regional organization, 35, 37-39. 

Related training, project youth, 141, 
142, 144, 145, 147, 151, 155, 157, 158, 
161, 164, 165, 166, 169, 178, 180, 181, 
184, 185, 186, 189, 193, 197, 200, 210-217. 

Relief requirements, 85, 86, 87. 

Remington Arms Co., Bridgeport, Conn., 
162. 



268 



INDEX 



Resettlement Administration, 86. 

Resident Centers, office of, 33. 

Resident projects, 29, 92, 93, 94, 98, 100, 
111, 113, 114, 115, 116, 117, 119, 120, 
130, 153, 161, 166, 177-194, 206, 217, 
224, 226, 227, 228, 229, 234. 

Roche, Josephine, 30. 

Home Air Depot, Rome, N. Y., 189. 

Roosevelt, Franklin Delano, 23. 

JRural youth, 16, 17, 31, 91, 92, 93, 94, 
114, 122, 123, 127, 128, 129, 152, 153, 
177, 179, 184, 185, 186, 194, 216, 219. 

S 

Safety, 91, 182, 185, 188, 229, 230. 

San Francisco, Calif., school work 
project, 63. 

Scholarship of NYA students, 75, 76, 77. 

Scholastic requirements of NYA stu- 
dents, 52. 

School students, NYA, 53, 54, 55, 56, 
57, 66, 67, 68, 69, 70, 71, 73. 

Schools participating in student work 
program, 50. 

Selection of project youth, 124, 125, 
127. 

Selection of students, 50. 

Selection of project youth. See also 
Assignment ; Certification ; and Guid- 
ance. 

Selective Service, 20, 21, 186. 

Self-government, resident project youth, 
182, 183, 186, 188, 194. 

Separation from projects, 87, 89, 132, 
133. See also Duration of employ- 
ment. 

Shakopee, Minn., resident project, 183, 
185-187. 

South Charleston, W. Va., resident 
project, 183, 190-194, 224. 

South Portland Shipyards, South Port- 
land, Maine, 190. 

State NYA offices, 36. 

Studebaker, John W., 30. 

Student work program, 26, 32, 43-82, 
106, 230, 235, 236. 

Supervision, projects, 37, 38, 39, 42, 86, 
90, 97-104, 105, 119, 132, 164, 168, 193, 
203, 204, 217, 235. 

Supervisory training program, 100-104. 

Surplus Commodities Corporation, 174. 



Surveys, NYA programs: Students, 66- 
78; project youth, 120-133; construc- 
tion projects, 137, 138 ; resident proj- 
ects, 183. 

Switzerland, 6, 7. 

T 

Taussig, Charles W., 30. 

Termination of project employment. 

See Separation from projects. 
Todd Bath Shipyards, Portland, Maine, 

190. 

Training-within-Industry, War Man- 
power Commission, 102. 

Troy Engine and Machine Co., Troy, 
Pa., 162. 

U 

Unemployment statistics, 9, 10-17, 20, 
21, 69. 

Unemployment, parents of NYA stu- 
dents, 72. 

Unemployed youth study, New York 

City, 19, 20. 
Union of Soviet Republics, 6. 
U. S. Army, 147, 151, 157, 183, 192, 193, 

201; Air Corps, 157, 158; Corps of 

Engineers, 93; Medical Corps, 183; 

Quartermaster Corps, 183; Signal 

Corps, 159. 
U. S. Civil Service Commission, 42. 
U. S. Commissioner of Education, 213, 

214. 

U. S. Compensation Commission, 229, 
230. 

U. S. Department of Labor, 231, 232. 
U. S. Employment Service, 86, 89, 90, 

152, 194, 197, 198, 200, 201, 207, 208, 

214. 

U. S. Maritime Commission, 97, 147, 151, 

155, 192, 193. 
U. S. Navy Department, 97, 119, 147, 

155, 157, 190, 193, 201. 
U. S. Office of Education, 164, 165, 181, 

195, 197, 200, 210, 211, 213, 214, 215, 

217, 225, 226. 
U. S. Public Health Service, 195, 218, 

219, 224. 
U. S. Treasury Department, 33. 
U. S. War Department, 94, 97, 115, 119. 
Universities. See Colleges. 



INDEX 



University of Colorado, Boulder, survey 

of school students, 68, 79. 
University of Florida, Gainesville, 

scholarship survey, 77 ; student work 

survey, 81. 
University of Minnesota, Minneapolis, 

47. 

University of Missouri, survey of stu- 
dent work program, 81. 

University of North Dakota, scholar- 
ship of NYA students, 77. 

University of Oregon, Eugene, scholar- 
ship of NYA students, 76. 

University of Wisconsin, Madison, col- 
lege work project, 61. 

Upstream Engineering Conference, 
Washington, D. C, 141. 

Urban youth, 16, 17, 18, 19, 122, 123, 127, 
128, 129. 

W 

Waco Public Schools, Waco, Tex., 

school work project, 61. 
Wages, administrative personnel, 42; 

supervisors, 98, 99, 100*- See also 

Earnings. 
Wage regions, 114, 115. 
Wage differentials, 114. 
War Manpower Commission, 25, 29, 34, 

35, 152, 154. 
War Production Board, 95, 151, 214. 
War production training program, 29, 

35, 36, 37, 39, 89, 90, 96, 97, 99, 100, 

108, 111, 112, 115, 119, 120, 133, 151, 

153, 180, 181, 197, 205, 217. 
Wassermann tests, 218. 
Weiser, Ida., resident project, 183, 184, 

185. 

Williams, Aubrey, 26, 28, 32. 
Williamsport Technical Institute, Wil- 
liamsport, Pa., resident project, 130. 



Wilson, M. L., 30. 

Woll, Matthew, 107. 

Women, unemployment statistics, 4, 6, 
12, 13, 14, 15, 21 ; NYA students, 55, 
74; project youth, 92, 109, 110, 111, 
112, 121, 122, 123, 124, 126, 127, 128, 
129, 143-146, 151, 152, 160, 164, 165, 
167-170, 177-179, 180, 182, 184, 189, 
190, 219, 220, 221, 222. 

Woodstock, N. Y., resident project, 183. 

Work activities, projects. See Classi- 
fication of projects and Projects, 
types operated. 

Works Camps, 3, 7, 8, 23. See also 
Camps, unemployed young women and 
Resident projects. 

Work classification, project youth, 86, 
87, 89, 113, 114, 115. 

Work performance of students, 52, 58. 

Work performance requirement, project 
youth, 88. 

Work experience, project youth, 88, 128, 
129. 

Work of NYA students, 50, 58, 59, 60, 
61, 62, 63, 64, 65, 66, 78, 79, 80. 81. 

Work of project youth. See Projects, 
types operated. 

Work Projects, Division of, 32, 33. 

Works Progress Administration 
(WPA), 25, 26, 27, 28, 32, 36, 37, 72, 
73, 85, 86, 87, 113, 116, 137, 138, 168, 
171, 173, 174, 178, 186, 195, 196, 204, 
210, 229. 

Y 

Young Fascist organization, 5. 

Youth centers. See resident projects. 

Youth Personnel, Division of, 32, 87, 203, 

204. See also Personnel services, 

youth. 

Z 

Zander, Arnold S., 107. 



O 



